IN THE COMMONWEALTH COURT OF PENNSYLVANIA

Township of Worcester :

:

v. : No. 711 C.D. 2015

: Argued: December 7, 2015

Office of Open Records, :

and James Mollick :

:

Appeal of: Office of Open Records :

BEFORE: HONORABLE RENÉE COHN JUBELIRER, Judge

HONORABLE ROBERT SIMPSON, Judge

HONORABLE JAMES GARDNER COLINS, Senior Judge

OPINION

BY JUDGE SIMPSON FILED: January 8, 2016

This appeal involves procedural issues under the Right-to-Know Law 

(RTKL).1 In particular, the Office of Open Records (OOR) asks whether the Court 

of Common Pleas of Montgomery County (trial court) erred in reversing OOR’s 

order that directed the Township of Worcester (Township) to produce, for in 

camera inspection, copies of records the Township withheld in response to Dr. 

James Mollick’s (Requester) RTKL request as well as an in camera inspection 

index, where the Township claimed the records were exempt from disclosure under 

the attorney-client and work-product privileges and the predecisional deliberative 

exception. Further, as a threshold procedural matter, we are asked whether the trial 

court properly determined that OOR’s interlocutory order was an appealable 

collateral order over which the trial court had jurisdiction. Upon review, we affirm 

the trial court’s determination that OOR’s interlocutory order was an appealable 

collateral order. However, we reverse the trial court’s determination that OOR’s 

 

1 Act of February 14, 2008, P.L. 6, 65 P.S. §§67.101-67.3104.
2

appeals officer lacked authority to request in camera inspection of the records at 

issue or an in camera inspection index or “privilege log” based on the facts

presented here.

I. Background

The parties agree on the following facts. In June 2014, Requester 

submitted a request (Request) in accordance with the RTKL for eight sets of 

records held by the Township. Reproduced Record (R.R.) at 12a-13a. Shortly 

thereafter, the Township obtained a 30-day extension to respond to the Request. 

R.R. 14a-15a. Ultimately, the Township granted all but Requester’s seventh 

request, which sought emails “with Township Staff regarding meetings with 

homeowners association and Brennan Marion regarding transfer of public 

improvements of the Stoney Creek Farms development referenced on 2/25/14.” 

R.R. at 13a, 16a-19a. In denying this request, the Township explained the records 

sought contained internal, predecisional deliberations and were also protected 

under the attorney-client and work-product privileges, or the “ethics-based rule of 

confidentiality.” R.R. at 17a.

Requester filed an appeal to OOR, challenging the Township’s denial 

of access to the requested records. R.R. at 3a-23a. OOR docketed the appeal as 

Mollick v. Township of Worcester, OOR Dkt. AP 2014-1179. R.R. at 24a. The 

Township submitted a response and memorandum in support of its response to 

Requester’s RTKL request, which was supported by a verification signed by the 

Township’s open records officer. During the course of the appeal, Requester 
3

repeatedly asked OOR to conduct an in camera review of records. R.R. at 11a, 

R.R. at 209a.2

In September 2014, as part of its fact-finding function, OOR issued an 

order directing the Township to produce copies of all records withheld by the 

Township for the purpose of conducting an in camera inspection and, 

subsequently, issuing a final order as to whether the records are subject to public 

access. R.R. at 28a-29a; see Office of Open Records v. Center Twp., 95 A.3d 354, 

363-64 (Pa. Cmwlth. 2014) (en banc); see also McGowan v. Pa. Dep’t of Envtl. 

Prot., 103 A.3d 374 (Pa. Cmwlth. 2014) (ordering OOR to conduct an in camera

review of records). OOR also ordered the Township to provide OOR with three 

copies of an in camera inspection index referencing each record at issue by number 

and identifying each item within each record that was claimed to be exempt. R.R. 

at 28a. In order to accommodate this additional fact-finding, OOR confirmed 

Requester’s agreement to an extension of time for OOR to issue a final order. See

Section 1101(b)(1) of the RTKL, 65 P.S. §67.1101(b)(1).

The Township submitted an “Application for an Amendment of an 

Interlocutory Order and Position Statement in Opposition of In Camera Review of 

Records” to OOR to set forth the statement specified in 42 Pa. C.S. §702(b) so as 

 

2 OOR is an independent, quasi-judicial tribunal charged with, among other duties, 

adjudicating appeals of decisions concerning access to records in the possession of 

Commonwealth and local agencies under the RTKL. See Sections 1101 and 1310(a) of the 

RTKL, 65 P.S. §§67.1101, 67.1310(a); see also Office of Open Records v. Center Twp., 95 A.3d 

354, 363-64 (Pa. Cmwlth. 2014) (en banc). OOR is a “Commonwealth agency” as defined by 

the RTKL. See Section 102 of the RTKL, 65 P.S. §67.102.
4

to permit an interlocutory appeal by permission. R.R. at 30a-45a. OOR denied the 

application through an email by OOR’s appeals officer. R.R. at 46a.

Shortly thereafter, the Township filed a document styled a “Petition 

for Review of the September 26, 2014 Order of the Office of Open Records in the 

Matter of Mollick v. Worcester Township, OOR Dkt. No. AP 2014-1179” with the 

trial court. R.R. at 47a-100a. OOR filed a motion to quash the Township’s 

petition. R.R. at 101a-09a.

OOR also filed a “Petition to Enforce Order Directing Production of 

Documents for In Camera Review” with this Court. R.R. at 110a-298a. By 

agreement of the parties, a single judge of this Court transferred that petition to the 

trial court. R.R. at 299a. Thereafter, OOR filed an amended motion to quash the 

Township’s petition for review in the trial court. R.R. at 300a-06a.

After oral argument, the trial court issued three orders. The first order 

denied OOR’s motion to quash. R.R. at 343a. The second order reversed OOR’s 

order for production of documents for in camera review and an in camera

inspection index. R.R. at 344a. The third order granted the Township’s motion to 

quash an answer to the Township’s petition for review filed by Requester. R.R. at 

345a.

OOR subsequently filed two notices of appeal to this Court related to 

the trial court’s first two orders, which were docketed at 711 CD 2015 and 712 CD 

2015. R.R. at 346a-357a. A single judge of this Court entered an order quashing 
5

the appeal at 712 CD 2015, stating that only a single notice of appeal was required. 

R.R. at 358a-59a.

Thereafter, the trial court issued an opinion in support of its orders in 

which it first determined OOR’s order was an appealable collateral order for 

purposes of its jurisdiction. The trial court further determined OOR’s order 

directing the Township to produce, for in camera inspection, copies of records the 

Township withheld in response to Requester’s RTKL request, as well as an in 

camera inspection index, was unwarranted under the facts presented here. In so 

doing, the trial court distinguished this Court’s decision in Center Township, which 

held that OOR has the implied power to conduct in camera inspections, explaining:

Though, [OOR] retains the power to conduct in camera

inspection, the instant case did not warrant the exercise of such 

power. Contrary to the response in the Center Twp. case, which 

provided nothing more than a bald allegation stating that 

privileges prevented disclosure of the documents requested, 

here the Township submitted a verified memorandum 

supporting its denial of access to the records requested. The 

memorandum was verified by F. Lee Mangan, the Open 

Records Officer for [the] Township. The memorandum set forth

the legal and factual bases for denying access to the records in 

question. This memorandum served the same purposes as 

testimonial affidavits frequently used to support denials of 

requests. Therefore, the Township presented a document in 

support of its decision to deny access.

The verified memorandum maintained that the Township 

denied access to records requested by [Requester] in one of his 

eight RTKL requests received by [the] Township on June 2, 

2014. In his seventh request, [Requester] asked for access to emails with Township Staff regarding meetings with 

homeowners association and Brennan Marion regarding the 

transfer of public improvements of the Stoney Creek Farms 

development referenced on February 25, 2014. [The Township] 
6

denied access to these records on the primary basis that they 

were exempt under the predecisional deliberations exemption of 

the RTKL. The Township further denied access to some of the 

records under the attorney-client privilege and the work-product 

doctrine, inter alia.

[The Township] explained its denial of access to the 

records requested in its Verified Memorandum as follows:

Part No. 7 of the Request seeks ‘emails with Township 

Staff’ which are ‘referenced in [the Township Solicitor’s] 

March 10, 2014 invoice.’ The only emails referenced as 

emails ‘with Township staff’ in the Township Solicitor’s 

March 10, 2014 invoice are emails between Township 

personnel and the Township’s Solicitor. Thus the 

Township’s Response indicates, the Request is seeking 

emails between a Township consultant (i.e. the Township 

Solicitor) and Township Staff which are clearly, internal 

to the Township.

As the Township’s Response also indicates, the 

potentially responsive emails relate to one or more 

proposed courses of action regarding the completion of 

improvements, escrow releases and meetings (which had 

not yet occurred) prior to any determination being made 

on how to proceed. Therefore, the Township has 

established all 3 elements necessary to exempt the 

potentially responsive records from disclosure under the 

internal, predecisional deliberation exemption.

Thus, the Township presented evidence which, if 

believed, may be sufficient for [OOR] to sustain the 

Township’s denial of [Requester’s] request. [OOR] could 

likewise decide that the Township did not carry its burden and 

enter an adverse ruling against the Township. [OOR] is 

required to decide the case, not to make an unwarranted 

demand for an in camera inspection and the creation of an 

inspection index. Simply stated, the [OOR] Order compelling 

an in camera inspection and the production of an in camera

inspection index was not warranted by the facts of this case.

Tr. Ct., Slip Op., 7/8/15, at 8-10.
7

OOR has not issued a final order in the matter of Mollick v. Township 

of Worcester, and the appeal remains pending before OOR. This matter is now 

before us for disposition.

II. Issues

On appeal,3 OOR argues the trial court committed an error of law by 

finding that OOR’s order requiring in camera review of records is a collateral 

order. Alternatively, it contends the trial court committed an error of law or 

abused its discretion by holding that the Township was not required to provide 

records for OOR to conduct an in camera review.

III. Discussion

A. Collateral Order

1. Contentions

OOR first argues that, in erroneously concluding OOR will require 

agencies to provide records for OOR’s in camera review in every appeal, the trial 

court erred in finding OOR’s order requiring in camera review constituted an 

appealable collateral order. As the order is not a collateral order, OOR contends, 

the trial court erred as a matter of law in finding jurisdiction over the Township’s 

petition for review.

OOR points out that Pa. R.A.P. 313(b) provides for the immediate 

right to appeal an order that “is ... [(1)] separable from and collateral to the main 

 

3 Our review in a RTKL case where the trial court sits as a reviewing court is whether the 

trial court committed an error of law and whether its findings of fact are supported by substantial 

evidence. Paint Twp. v. Clark, 109 A.3d 796 (Pa. Cmwlth. 2015).
8

cause of action [(2)] where the right involved is too important to be denied review 

and [(3)] the question presented is such that if review is postponed until final 

judgment in the case, the claim will be irreparably lost.” Id. (clause numbers 

added). All elements of this conjunctive, three-prong test must be met in order for 

an order to be considered a collateral order. See Rae v. Pa. Funeral Dirs. Ass’n, 

977 A.2d 1121 (Pa. 2009).

Applying the three-prong test here, OOR argues that, as to the first 

prong, the order at issue must not “implicate the merits of the underlying dispute.” 

Commonwealth v. Wright, 78 A.3d 1070, 1077 (Pa. 2013). “[A] claim is 

sufficiently separate from the underlying issues for purposes of collateral order 

review if it ‘is conceptually distinct from the merits of plaintiff’s claim,’ that is, 

where, even if ‘practically intertwined with the merits, [it] nonetheless raises a 

question that is significantly different from the questions underlying plaintiff’s 

claim on the merits.’” Pridgen v. Parker Hannifin Corp., 905 A.2d 422, 433 (Pa. 

2006).

Here, OOR asserts, in the underlying appeal before it, OOR must 

answer the question of whether the records sought by Requester are public records. 

The order requiring in camera inspection and an inspection index is inherently 

entwined with the underlying dispute, as the order requires delivery of the records 

to OOR for in camera review and analysis as to whether those records are subject 

to public access. Because the most probative and relevant evidence for 

determining whether a record is a public record is the actual record at issue, the 

order cannot be considered severable from the underlying dispute.
9

Next, as to the importance of the right at issue, OOR maintains, in 

evaluating whether a right involved in a dispute is too important to be denied 

review, our Supreme Court states, “it is not sufficient that the issue be important to 

the particular parties[;] [r]ather[,] it must involve rights deeply rooted in public 

policy going beyond the particular litigation at hand.” Geniviva v. Frisk, 725 A.2d 

1209, 1214 (Pa. 1999).

Here, OOR contends, the Township’s petition for review is primarily 

concerned with the Requester in the underlying appeal before the OOR, and that 

the Township is being “singled-out” for in camera review. See, e.g., R.R. at 64a at 

¶65 (“Singling-out and subjecting [the] Township to in camera review of its 

records simply at the request of [Requester] [is] apparently based upon nothing 

more than [Requester’s] unfounded allegations of wrongdoing ... ”); R.R. at 56a58a, ¶¶25-38 (chronicling the history of the Township’s interactions with 

Requester and complaints of excessive legal billing). Certainly, these allegations 

are uniquely particular to the Township and cannot be considered of significant, 

“deeply rooted” public policy concerns.

Based on unfounded fears, OOR argues, the Township grasps at the 

wisps of public policy importance by generally claiming OOR will decide to 

universally conduct in camera reviews of records in all future cases. OOR asserts 

it has neither the desire nor the resources to do so. The overwhelming majority of 

cases before OOR do not require in camera review, and it is clear that the General 

Assembly, in devising the deadline for issuing final orders, did not anticipate such 

review in the majority of cases. See 65 P.S. §67.1101(b)(1). OOR’s intentions are 
10

evidenced by past practice where in camera review was employed as “a workable 

compromise” between the conflicting interests of access to records and the 

government’s interests that should only be used when warranted. See Dep’t of the 

Air Force v. Rose, 425 U.S. 352, 381 (1976). Far from “singling-out” the 

Township, OOR argues, it conducted in camera review approximately 100 times 

out of more than 12,000 cases.

OOR maintains the Township does not challenge OOR’s ability to 

conduct in camera review of records; rather, it only argues the particular 

circumstances of this case do not warrant OOR’s in camera review. R.R. 54a at 

¶18; R.R. at 205a. OOR contends that, following guidance from this Court, OOR 

seeks only to fulfill its statutory mandate by developing the evidentiary record in 

the appeal pending before it in light of legal and factual questions concerning the 

records at issue based on the Township’s undeveloped response to OOR during the 

appeal. See Office of Governor v. Bari, 20 A.3d 634, 648 (Pa. Cmwlth. 2011)

(“OOR’s reluctance ... to perform in camera review of the subject records in this 

type of proceeding is confounding” in light of an agency’s “undeveloped 

preliminary responses to OOR’s general request for additional information ....”); 

see also Harrisburg Area Cmty. Coll. v. Office of Open Records, (Pa. Cmwlth., 

No. 2110 C.D. 2009, filed May 17, 2011), slip op. at 17-18, 2011 WL 10858088 at 

*8 (unreported) (“[OOR] has a responsibility to develop a fuller record using the 

means granted to it in the RTKL, such as conducting a hearing or examining the 

subject records in camera ....”). Because the Township’s concerns are tailored to 

its own unique factual circumstances, OOR argues, the order at issue should not be 
11

considered an appealable collateral order because this matter is not important 

enough as to “involve rights deeply rooted in public policy.”

Finally, as to the third prong, OOR contends, the Township must also 

show its claims will be irreparably lost if the order is not considered a collateral 

order. OOR argues there can be no question that the Township’s allegation that the 

records at issue are not subject to public access will be preserved for purposes of 

OOR’s eventual final order in this case and potential further review by the trial 

court if a party appeals OOR’s final order. To the extent the Township challenges 

OOR’s authority to conduct an in camera review of records here, the Township’s 

claims may still be raised and resolved in the context of opposing a petition to 

enforce brought by OOR. Thus, the Township has not presented any claims that 

will be irreparably lost if the order is not treated as a collateral order.

In sum, OOR contends, as the Township has not met any of the three 

prongs under Pa. R.A.P. 313(b) for determining whether the order is a collateral 

order, the trial court lacked jurisdiction over this matter and its order should be 

reversed.

The Township responds that OOR’s order is an appealable collateral 

order. It argues the trial court succinctly laid out the framework for determining 

whether or not the order is a collateral order under Pennsylvania law. The 

Township contends that, in its brief, OOR goes to great lengths to challenge the 

trial court’s finding that OOR’s order, which demands that the Township produce 

records for in camera review and create an in camera inspection index is a 
12

collateral order. In short, the Township maintains, OOR argues: (1) the order is 

not severable from the underlying dispute because it requires delivery of the 

records at issue to OOR for in camera review to determine whether these records 

are subject to public access”; (2) the order does not involve an important right 

because “OOR has neither the desire nor the resources” to “universally conduct in 

camera reviews of records in all future cases[,]” Br. of Appellant at 15; and, (3) the 

Township’s claims will not be lost because, “to the extent that the Township 

challenges ... OOR’s authority to conduct an in camera review in this matter, the 

Township’s claims may still be raised and resolved in the context of opposing a 

Petition to Enforce brought by the OOR.” Br. of Appellee at 10. The Township 

argues OOR’s reasoning is disjointed and untenable.

As to severability of the order from the underlying matter, the 

Township points out that OOR argues, “the most probative and relevant evidence 

for determining whether a record is a public record is the actual record at issue” 

and, therefore, the order “cannot be considered severable from the underlying 

dispute.” Br. of Appellant at 13-14. The Township contends the necessary 

implication of OOR’s argument is that, in all appeals, review of the records 

requested is required to determine whether those records are subject to public 

access. On the other hand, when addressing (and downplaying) the importance of 

the Township’s rights, OOR claims, contrary to its own earlier reasoning regarding 

the importance of the records at issue as evidence, “the overwhelming majority of 

cases before the OOR do not require in camera review [of records], and it is clear 

that the General Assembly, in devising the deadline for issuing final orders, did not 

anticipate such review in the majority of cases.” Br. of Appellant at 15. The 
13

Township argues it appears that OOR is arguing against its own reasoning. The 

inconsistency of those positions is obvious.

The Township further maintains the order at issue here is a collateral 

order. As set forth in trial court’s opinion, our Supreme Court holds that 

interrelationship between merits issues and the question sought to be raised in the 

interlocutory appeal involving a collateral order is tolerable. See Pridgen. Further, 

the trial court’s reasoning regarding severability of the order from the underlying 

matter is simple and logical. Clearly, the Township contends, the issue of whether 

records are subject to in camera review is severable and significantly different 

from the underlying matter of whether records are subject to disclosure.

The Township asserts OOR completely misses the mark as to the 

importance of the rights at issue here. The Township reiterates the trial court’s 

reasoning regarding this prong.

The Township points out that OOR suggests it has neither the desire 

nor the resources to “universally conduct in camera reviews of all records in future 

cases.” Br. of Appellant at 15. However, if, in camera review is appropriate and 

warranted in this case–where the record is sufficiently developed–then in camera 

review is warranted, appropriate and required in all appeals before OOR whenever 

requested by a party to the appeal. Not only will OOR (and requesters) have the 

ability to burden agencies by requesting submission of documents and the creation 

of indices where the record is ripe for disposition, agencies will have the ability, 

and right, to burden OOR by not responding to any requests for records and, in 
14

every appeal, demand OOR conduct in camera review of records in lieu of 

responding to the appeal. Thus, the procedural framework of responding to 

requests for records set forth in the RTKL will be rendered meaningless–agencies 

will be incentivized to ignore requests for records and simply demand in camera

review on appeal–and, of course, regardless of how well the record is developed, 

OOR will be forced to comply with all demands for in camera review to avoid 

abusing its discretion and arbitrarily deciding when in camera review is 

appropriate. Clearly, the Township asserts, the public policy implications at issue 

in this matter are of great importance.

The Township further asserts OOR’s reasoning that the Township’s 

claims will not be irreparably lost because the Township can challenge OOR’s 

authority to conduct an in camera review of records in this matter in the context of 

opposing a petition to enforce filed by OOR is a patently absurd non sequitur. The 

analysis is whether the question presented is such that, if review is postponed until 

final judgment in the case, the claim will be irreparably lost. Pa. R.A.P. 313(b). 

Thus, whether or not the Township’s claims will be irreparably lost does not hinge 

on the ability of another party–in this case OOR–to file another pleading and 

litigate it to its conclusion. Rather, the question is whether the Township’s claims 

will be irreparably lost by OOR issuing a final determination in this matter–to 

which the answer is emphatically yes.

Moreover, the Township argues, its “claims” are not limited to 

whether OOR has authority to conduct an in camera review in this particular case. 

The Township’s claims are grounded in public policy concerns: when is the 
15

significant expense of complying with an in camera review and preparation of a 

privilege log appropriate and warranted in any appeal before OOR?

2. Analysis

Pursuant to Rule 313(a) of the Pennsylvania Rules of Appellate 

Procedure, “[a]n appeal may be taken as of right from a collateral order of an 

administrative agency or lower court.” Rule 313(b) defines a “collateral order” as 

one that is “[(1)] separable from and collateral to the main cause of action [(2)] 

where the right involved is too important to be denied review and [(3)] the question 

presented is such that if review is postponed until final judgment in the case, the 

claim will be irreparably lost.” Pa. R.A.P. 313(b) (clause numbers added).

The collateral order doctrine must be narrowly construed, and all three 

prongs must be met before collateral appellate review is allowed. Rae. “Narrow 

application prevents the collateral order rule from subsuming the fundamental 

general precept that only final orders are appealable and from causing litigation to 

be interrupted and delayed by piecemeal review of trial court decisions.” Brophy 

v. Phila. Gas Works & Phila. Facilities Mgmt. Corp., 921 A.2d 80, 87 (Pa. 

Cmwlth. 2007). If “an order satisfies Rule 313’s three-pronged test,” we “may 

exercise appellate jurisdiction where the order is not final.” Rae, 977 A.2d at 

1125.

In determining whether an order is separable from and collateral to the 

main cause of action, we must first decide whether review of the order implicates 

the merits of the main cause of action. Wright. In other words, we examine 
16

“whether the issues appealed can be addressed without analysis of the underlying 

claims on the merits.” Brophy, 921 A.2d at 87. Where review of the order at issue

does not implicate or affect the merits of the underlying dispute, it is separable 

from and collateral to the main cause of action. Wright. With regard to

separability, our Supreme Court “has adopted a practical analysis recognizing that 

some potential interrelationship between merits issues and the question sought to 

be raised in the interlocutory appeal is tolerable.” Pridgen, 905 A.2d at 433

(citations omitted). “This standard is more permissive than the previous standard 

adopted by Pennsylvania courts, which required that, in order to meet the 

separability test, the order could ‘not relate in any way’ to the merits of the 

underlying action.” 20 Darlington et al., PENNSYLVANIA APPELLATE PRACTICE

§313:2 (2014-15 ed.).

As to the second prong, “[a]n issue is important if the interests that 

would potentially go unprotected without immediate appellate review of that issue 

are significant relative to the efficiency interests sought to be advanced by the final 

judgment rule.” Geniviva, 725 A.2d at 1213 (citation omitted). “[I]t is not 

sufficient that the issue be important to the particular parties. Rather[,] it must 

involve rights deeply rooted in public policy going beyond the particular litigation 

at hand.” Id. at 1214.

Finally, as to the third prong, we ask “whether a right is ‘adequately 

vindicable’ or ‘effectively reviewable.’” Id. at 1213 (quoting Digital Equip. Corp. 

v. Desktop Direct, Inc., 511 U.S. 863, 878-79 (1994)). This question “cannot be 

answered without a judgment about the value interests that would be lost through 
17

rigorous application of a final judgment requirement.” Id. For instance, the 

substantial cost a party would incur in defending a claim may equate to an 

irreparable loss of a right to avoid the burden entirely. See Pridgen.

Here, the trial court determined OOR’s interlocutory order requiring 

the Township to produce for in camera inspection the records sought by Requester 

and an in camera inspection index constituted an appealable collateral order under 

Pa. R.A.P. 313(b). No error is apparent in the trial court’s determination.

Specifically, as to the first prong, whether the order is separable from 

and collateral to the main cause of action, the trial court explained that a claim is 

sufficiently separate from the underlying issues for purposes of collateral order 

review if it is conceptually distinct from the merits of the plaintiff’s claim. 

Pridgen. That is, where, even if practically intertwined with the merits, it 

nonetheless raises a question that is significantly different from the questions 

underlying a plaintiff’s claim on the merits. Id. In analyzing the separable nature 

of a claim, our Supreme Court recognizes that some potential interrelationship 

between merits issues and the question sought to be raised in the interlocutory 

appeal is tolerable. Id.

Here, the underlying question in Requester’s case is whether the 

records responsive to Requester’s seventh request are subject to disclosure under 

the RTKL, or whether a privilege or exemption bars disclosure. The order directly 

at issue in this appeal presents a question of whether OOR erred in requiring the 

Township to provide an in camera inspection index and to submit all records 
18

responsive to Requester’s seventh request to OOR’s appeals officer for in camera

review. As the trial court explained, the fact that the issues involved in the 

underlying litigation and the instant appeal are conceptually distinct is illustrated 

by the fact that an order reversing OOR’s order does not directly implicate the 

merits of the underlying case. Thus, the practical effect of the trial court’s order 

reversing OOR’s order was to conclude OOR had a sufficient factual record before 

it to decide the underlying dispute. As a result, although this issue is, to some 

extent, intertwined with the merits of the underlying case, the question presented in 

this appeal is conceptually distinct from that presented by the underlying litigation.

As to the second prong, whether the right involved is too important to 

be denied review, an issue is considered important if the interests that would 

potentially go unprotected without immediate appellate review of the issue are 

significant relative to the efficiency interests sought to be advanced by the final 

judgment rule. Geniviva. It is not sufficient that the issue be important to the 

particular parties; rather, the issue must involve rights deeply rooted in public 

policy going beyond the particular litigation at hand. Id. The issue here concerns 

OOR’s authority to request in camera inspection of records and an inspection 

index or “privilege log.” Because a decision further delineating OOR’s authority 

to require in camera inspection of records has the potential to extend well beyond 

the confines of this particular case, the right involved is too important to be denied 

review, satisfying the second prong.

Finally, as to the third prong, whether the question presented is such 

that if review is postponed until final judgment, the claim will be irreparably lost, 
19

if in camera review and creation of an in camera inspection index or “privilege 

log” is required here, the issue of whether OOR can require in camera review 

notwithstanding an affidavit supporting a claimed privilege or exemption is likely 

to be irreparably lost if the Township prevails on the merits before OOR. In such a 

circumstance, the Township will not be aggrieved, and it would not have standing 

to appeal further. Additionally, the Township would be required to bear the 

expense of creating an inspection index or “privilege log.”

For all these reasons, the trial court correctly determined OOR’s order

in this case is a collateral order under Pa. R.A.P. 313(b) and, as a result, the trial 

court had jurisdiction over the Township’s appeal.

B. In Camera Review

1. Contentions

OOR also contends the trial court committed an error of law and 

abused its discretion in holding the Township is not required to submit records to 

OOR for in camera review. It argues that, even if the trial court had jurisdiction 

here, its order should be reversed because it abused its discretion and misapplied 

the law by: (1) ignoring the wide discretion afforded to OOR appeals officers; and, 

(2) improperly assessing the evidence presented by the Township prior to issuance 

of a final order by OOR.

Under the RTKL, OOR is charged with developing an evidentiary 

record before its appeals officers to ensure meaningful appellate review. See Pa. 

Dep’t of Educ. v. Bagwell, 114 A.3d 1113, 1121 (Pa. Cmwlth. 2015). In so doing, 

“the RTKL grants appeals officers wide discretion with respect to procedure ....” 
20

Bowling v. Office of Open Records, 75 A.3d 453, 467 (Pa. 2013). OOR asserts 

this Court recognizes OOR is charged with the duty to determine whether a 

privilege is applicable, and it is obligated to rule on all procedural issues related to 

disposition of the matter.

OOR maintains that in Center Township, this Court reasoned that 

appeals officers have the authority to conduct in camera review “to better enable 

appeals officers to develop an adequate record for judicial review, and at the same 

time, to render an informed and reasoned decision—one that is based upon a 

sufficient factual predicate—especially with regard to matters concerning 

privileged or sensitive material.” Bagwell, 114 A.3d at 1121 (quoting Center 

Twp.).

OOR argues the facts here are indistinguishable from those in Center 

Township, where this Court held OOR properly exercised its discretionary power 

to order in camera review of records. In that case, as here, a township alleged 

records were protected under the attorney-client privilege and made a submission 

on appeal to OOR. OOR asked the township to produce a privilege log identifying 

which records were withheld from public access based on attorney-client privilege. 

On the application of the requester, OOR issued an order requiring the township to 

provide the allegedly privileged records for OOR’s in camera review. The 

township in that case, just like the Township here, refused to provide either a 

privilege log or the records for OOR’s in camera review.

OOR argues that, because its appeals officers are vested with wide 

discretion to determine whether in camera review of records is necessary and the 
21

instant matter is indistinguishable from Center Township, the trial court erred in

failing to recognize OOR’s discretionary power to order in camera review.

Similarly, OOR asserts, the trial court erred by allowing the Township 

to shortcut the appeals process here. To that end, under the RTKL, OOR 

adjudicates appeals concerning denials of access to records. After OOR issues a 

final order, parties are statutorily entitled to appeal to reviewing courts. On appeal, 

courts may, in reviewing a final order, accept new evidence and conduct de novo

review. Here, because, as discussed above, OOR has yet to issue a final order, the 

trial court erred in allowing the Township to “leapfrog” OOR’s fact-finding and 

adjudicatory functions as mandated by the RTKL.

The Township acknowledges and agrees that, under this Court’s 

holding in Center Township, OOR has authority to conduct in camera review of 

records where appropriate and when warranted. The Township argues that in 

Center Township, this Court did not, however, expressly provide a test for when in 

camera review is “appropriate and warranted.” As set forth in the trial court’s 

well-reasoned opinion:

[T]he Township presented evidence which, if believed, may be 

sufficient for [OOR] to sustain the Township’s denial of 

[Requester’s] request. [OOR] could likewise decide that the 

Township did not carry its burden and enter an adverse ruling 

against the Township. [OOR] is required to decide the case, not 

to make an unwarranted demand for an in camera inspection 

....

Tr. Ct., Slip Op., at 9. In short, the Township argues, OOR abused its discretion by 

ordering the Township to produce records for in camera inspection and further 
22

abused its discretion by ordering the Township to produce an in camera inspection 

index. Thus, this Court should affirm the trial court’s order.

The Township contends there must be reasonable limits on what 

“when appropriate and warranted” means, or OOR will be inundated with requests 

for in camera reviews and privilege logs in every case where a public record is 

deemed exempt or redacted.

The Township argues OOR’s position appears to be that, under Center 

Township, OOR appeals officers are vested with the discretion and authority to 

order in camera review of records in any appeal before OOR on request by any 

party to the appeal. If OOR’s position is correct, then every step of the procedure 

for responding to a request for records under the RTKL–including but not limited 

to, the step of an agency rendering a substantive response to a request and the step 

of an agency issuing a verified position statement or affidavit in support of its 

substantive response to a requester which is on appeal to OOR–is rendered 

meaningless. And, instead of spending time, effort and taxpayer money on careful 

responses to RTKL requests and affidavits or verified position statements in 

support of denials of access to records appealed to OOR, agencies should simply 

ignore requests for records under the RTKL and demand OOR conduct in camera

review of records if a “deemed denial” is appealed by a requester. Then, if an 

agency is unhappy with OOR’s decision, the agency can simply appeal to a court 

with jurisdiction for de novo review. The Township maintains neither the General 

Assembly, nor this Court, intended for OOR to be a records clearinghouse for 

every agency in the Commonwealth.
23

The Township reiterates the trial court’s reasoning on this issue. 

Moreover, it asserts, contrary to OOR’s allegation that the Township 

“leapfrogged” OOR’s fact-finding and adjudicatory functions, the trial court 

expressly left the question of whether or not the records at issue in the underlying 

appeal before OOR are subject to disclosure for OOR to decide.

The Township further argues OOR fails to recognize the fundamental 

distinguishing fact between Center Township and this case: in Center Township, 

the agency baldly alleged a privilege applied whereas, here, the Township 

expressly provided reasoning as to why the records are exempt from disclosure by 

way of a verified, non-conclusory position statement. Nowhere in any pleading or 

otherwise did OOR allege bad faith by the Township. Thus, the record before 

OOR in the underlying appeal must be sufficiently developed for OOR to issue a 

final determination.

In sum, the Township contends, OOR has not provided sufficient 

evidence to show the trial court committed an error of law or abused its discretion. 

OOR does not have unlimited authority to demand production of records or a 

privilege log for in camera review of records. Rather, in camera review is only 

appropriate and warranted when the record is undeveloped. The Township asserts 

that OOR baldly argues the record before it in the underlying appeal here is 

“undeveloped,” but it completely avoids any analysis of how or why the record 

before it is “undeveloped.” Br. of Appellee at 20. Because, in part, the Township 

provided a detailed, non-conclusory position statement, the trial court found the 
24

record before OOR in the underlying appeal is sufficient for OOR to issue a final 

determination. For the reasons set forth above, this Court should affirm the trial 

court. Also, the Township contends, the trial court recognized the financial impact 

on agencies if OOR is given unfettered discretion to require in camera review and 

production of privilege logs where: (1) those rights have been implied (but not 

expressly stated) under the RTKL; and (2) where the record is sufficiently 

developed to permit a decision on the merits by OOR.

2. Analysis

As more fully explained below, the trial court erred in two ways. First

and foremost, the trial court abused its discretion in second-guessing the factfinder’s efforts to create a record appropriate for appellate review. Further, the 

trial court erred legally by accepting the Township’s flawed analysis of the 

predecisional deliberative exception.

One of an appeals officer’s duties under Chapter 11 of the RTKL is to 

develop an adequate factual record on appeal. Bagwell (citing Levy v. Senate of 

Pa., 94 A.3d 436, 442 (Pa. Cmwlth.), appeal denied, 106 A.3d 727 (Pa. 2014)

(“[i]n the ordinary course of RTKL proceedings [receipt of evidence] will occur at 

the appeals officer stage and a reviewing court will defer to the findings of the 

appeals officer.”) (citing Bowling)).

An appeals officer functions as the initial fact-finder, and acts in a 

quasi-judicial capacity pursuant to Section 1102 of the RTKL. Center Twp.

(appeals officer may conduct in camera review to perform fact-finding functions); 

Levy (appeals officer receives evidence to resolve factual disputes as reviewing 
25

courts rarely act as fact-finder); see also Dep’t of Labor & Indus. v. Heltzel, 90 

A.3d 823 (Pa. Cmwlth. 2014) (remanding to OOR as initial fact-finder to consider 

application of exemption in the first instance). In these circumstances, it is 

incumbent upon an appeals officer to create an adequate factual record in order to 

issue a determination. 65 P.S. §67.1102(a); Bagwell.

Moreover, an appeals officer should consider procedural matters as 

the fact-finder in the first instance. Center Twp.; Bagwell v. Dep’t of Educ, 76 

A.3d 81 (Pa. Cmwlth. 2013) (en banc). In Center Township, we reasoned that 

appeals officers had the authority to conduct in camera review “to better enable 

appeals officers to develop an adequate record for judicial review, and at the same 

time, to render an informed and reasoned decision ....” Center Twp., 95 A.3d at 

370.

Thus, appeals officers are empowered to develop the record to ensure 

Chapter 13 courts may perform appellate review without the necessity of 

performing their own fact-finding. Pa. Dep’t of Educ. v. Bagwell, 114 A.3d 1113, 

1121 (Pa. Cmwlth. 2015); Center Twp.; Levy.

In Center Township, the township partially denied an RTKL request 

seeking the township solicitor’s invoices. Specifically, the township redacted 

portions of the invoices allegedly pertaining to litigation services on the grounds 

the redacted portions concerned the progress and avenues explored in litigation and 

litigation-related issues and, as such, were exempt from disclosure under the 

attorney-client privilege or work-product doctrine. The requester appealed to OOR 
26

and asked that OOR conduct in camera review of the documents. OOR directed 

the township to provide a privilege log identifying each record withheld and 

explaining why a privilege applied to each redacted entry. The township declined 

to do so. OOR subsequently granted the requester’s request for in camera review 

and directed the township to produce for in camera review unredacted copies of all 

responsive records withheld. The township refused, asserting OOR lacked 

statutory authority to compel and undertake in camera review.

Thereafter, OOR filed a petition to enforce its order in this Court, 

seeking an order compelling the Township to produce the records in unredacted 

form for in camera inspection. After undertaking a thorough examination of case 

law concerning the availability and benefits of in camera review, a unanimous en 

banc panel of this Court rejected the township’s argument that OOR lacked 

authority to conduct in camera review.

Thus, in camera review is appropriate to assess claims of privilege 

and predecisional deliberations. See, e.g., Bagwell v. Dep’t of Educ., 103 A.3d 

409 (Pa. Cmwlth. 2014) (en banc). Additionally, review of an index or “privilege 

log” of withheld records may be proper in determining whether records are exempt 

from disclosure. Heavens v. Dep’t of Envtl. Prot., 65 A.3d 1069 (Pa. Cmwlth. 

2013).

Moreover, while testimonial affidavits found to be relevant and 

credible may provide sufficient evidence in support of a claimed exemption, id., 

conclusory affidavits, standing alone, are insufficient to prove records are exempt. 
27

Office of Governor v. Scolforo, 65 A.3d 1095 (Pa. Cmwlth. 2013) (en banc);

Carey v. Dep’t of Corr., 61 A.3d 367 (Pa. Cmwlth. 2013).

In light of our decision in Center Township, OOR’s appeals officer 

acted within his broad discretion here in requesting that the Township produce the 

records at issue for in camera inspection as well as an in camera inspection index 

referencing each record by number and identifying each item within each record 

that is claimed to be exempt. This conclusion is directly supported by our decision 

in Center Township. More particularly, in this case: (1) Requester made a request 

for OOR to conduct in camera review of the records at issue,see R.R. at 11a, 209a; 

(2) the Township submitted a verified memorandum to OOR in which it asserted 

the records at issue were exempt under, among other things, the predecisional 

deliberative exception, but, as set forth more fully below, did not fully or correctly

discuss or analyze this exception; and, (3) the Township refused to provide an 

index or “privilege log.”

Based on these circumstances, OOR’s appeals officer was within his 

authority to direct the Township to produce the records at issue for in camera

inspection and, at a minimum, an in camera inspection index or “privilege log.” 

We defer to OOR’s appeals officer, the initial fact-finder, on this procedural issue 

rather than second-guess his attempt to adequately develop a record beyond the 

intertwined assertions of fact and law set forth in the Township’s verified 

memorandum of law on issues such as the predecisional deliberative exception.4

 

4

See Section 1102(b)(3) of the RTKL (“In the absence of a regulation, policy or 

procedure governing appeals under this chapter, the appeals officer shall rule on procedural 

matters on the basis of justice, fairness and the expeditious resolution of the dispute.”); Levy

(Footnote continued on next page...)
28

Further, the predecisional deliberative exception set forth in Section 

708(b)(10)(i) codifies the deliberative process privilege. Section 708(b)(10)(i) 

exempts from disclosure:

(10)(i) A record that reflects:

(A) The internal, predecisional deliberations of an 

agency, its members, employees or officials or 

predecisional deliberations between agency members, 

employees or officials and members, employees or 

officials of another agency, including predecisional 

deliberations relating to a budget recommendation, 

legislative proposal, legislative amendment, 

contemplated or proposed policy or course of action or 

any research, memos or other documents used in the 

predecisional deliberations.

65 P.S. §67.708(b)(10)(i)(A). “According to the language of Section 708(b)(10)(i)[A],

protected records must be predecisional and deliberative.” Kaplin v. Lower 

Merion Twp., 19 A.3d 1209, 1214 (Pa. Cmwlth. 2011).

Thus, in order to establish the predecisional deliberative exception, 

the Township was required to show that the information is: (1) internal; (2) prior to 

agency decision or course of action; and, (3) deliberative in character. Scolforo. 

“Only ... confidential deliberations of law or policymaking, reflecting opinions, 

recommendations or advice [are] protected as ‘deliberative.’” Carey, 61 A.3d at 378. 

 

(continued...)

(citing Bowling) (describing success of administrative regime of RTKL; concluding most 

disputes will end at appeals officer level); see also Bowling, 75 A.3d at 477 (concurring op. by 

Saylor, J., favoring wide latitude in appeals officer discretion and deference to administrativelevel developments); id. at 478-79 (dissenting op. by Castille, C.J., expressing concern about 

fact-finding in the Commonwealth Court in RTKL cases).
29

Factual information is not deliberative in character. McGowan (remanding to 

OOR to assess factual content and direct disclosure of same in redacted form).

To qualify for exemption under the predecisional deliberative 

exception, an agency must explain how the information withheld reflects or shows 

the deliberative process in which an agency engages during its decision-making. 

Carey. Agencies may meet this burden by submitting an affidavit that sets forth 

sufficient facts enabling a fact-finder to draw its own conclusions. Id.

Here, in its verified memorandum, the Township misidentified the 

required elements to establish the predecisional deliberative exception. See R.R. at 

157a. Further, the Township cited no authority in support of the purported test it 

set forth to establish this exception. Id. More importantly, the Township’s 

discussion of the predecisional deliberative exception omitted reference to the third 

element, that the information is deliberative in character. R.R. at 157a-58a. 

Rather, the conclusory statements regarding the predecisional deliberative 

exception in the memorandum are strikingly similar to statements this Court 

previously held were insufficiently specific to establish records were exempt under 

the predecisional deliberative exception. See Scolforo, 65 A.3d at 1104 (“It is not 

enough to include in the [a]ffidavit a list of subjects to which internal deliberations 

may have related. The [a]ffidavit must be specific enough to permit [OOR] or this 

Court to ascertain how disclosure of the entries would reflect the internal 

deliberations on those subjects.”)
30

Based on the Township’s failure to more completely address the key 

element of the predecisional deliberative exception, that the information is 

“deliberative in character,” it was entirely appropriate for OOR’s appeals officer to 

request in camera review of the records at issue or an in camera inspection index 

or “privilege log.” In short, it is simply unclear from the Township’s verified 

memorandum whether the records at issue are exempt from disclosure under the 

predecisional deliberative exception. Thus, OOR’s appeals officer acted well 

within his authority in requesting more information under these circumstances.

For the foregoing reasons, we reject as entirely without merit the 

Township’s strained arguments of OOR misusing its authority to direct in camera

review. If anything, we express concern about the potential for an agency to bypass OOR as the fact-finder in the first instance and seek a more receptive 

audience in a Chapter 13 court. Thus, we reverse the trial court’s order to the 

extent it reversed OOR’s order.

Having now confirmed the law in this area, it is hard to imagine any 

significant public policy interest supporting judicial review of non-final OOR 

orders which seek to create an adequate record. In other words, it would be a very 

rare case which would support interlocutory review of an OOR order similar to the 

one here. 

 

ROBERT SIMPSON, Judge

Judge Cohn Jubelirer concurs in the result only.
IN THE COMMONWEALTH COURT OF PENNSYLVANIA

Township of Worcester :

:

v. : No. 711 C.D. 2015

:

Office of Open Records, :

and James Mollick :

:

Appeal of: Office of Open Records :

O R D E R

AND NOW, this 8

th day of January, 2016, the order of the Court of 

Common Pleas of Montgomery County at No. 2014-27790, dated March 27, 2015, 

that denied the Office of Open Records’ Amended Motion to Quash Appeal is 

AFFIRMED. The order of the Court of Common Pleas of Montgomery County at 

No. 2014-27790, dated March 27, 2015, that reversed the September 26, 2014 

Order of Office of Open Records Order in James Mollick v. Township of 

Worcester, OOR Dkt. No. AP 2014-1179 is REVERSED. This matter is 

remanded to the Court of Common Pleas of Montgomery County for further 

remand to the Office of Open Records for proceedings consistent with the 

foregoing opinion.

Jurisdiction is relinquished.

 

ROBERT SIMPSON, Judge