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What Libraries Need to Know About Open Meetings Law - South Central Library System
What Libraries Need to Know About Open Meetings Law Cheryl Becker
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Where can I find the Wisconsin Open Meetings Law?
Wisconsin Statutes 19.81-19.98
“In recognition of the fact that a representative government of the American type is dependent upon an informed electorate, it is declared to be the policy of this state that the public is entitled to the fullest and most complete information regarding the affairs of government as is compatible with the conduct of governmental business.”
Wis. Stat. § 19.81(1)
The State of Wisconsin recognizes the importance of having an informed public, and that the public is entitled to full and complete information about governmental affairs.
Definitions [next]
(Wis. Stat. § 19.82)
“. . . [A] state or local agency. . . created by. . . statute, ordinance, . . . or order; . . . or a formally constituted subunit of any of the foregoing. . . .” YES, a library board is one of these!
(Wis. Stat. § 19.82(1))
Meeting [next]
“ [T]he convening of members of a governmental body for the purpose of exercising the responsibilities, authority, power or duties delegated to or vested in the body. . . . The term does not include any social or chance gathering which is not intended to avoid this subchapter. . . . ”
(Wis. Stat. § 19.82(2))
Open Session [next]
“[A] meeting which is held in a place reasonably accessible to members of the public and open to all citizens at all times.”
(Wis. Stat. § 19.82(3))
Requirements for meetings of governmental bodies [next]
Except for closed sessions as allowed in 19.85
Public comment period permitted
(Wis. Stat. § 19.83)
Public Notice—Who and Where?
From the “chief presiding officer” or “designee”
To local news media
If there is no local news media, to media likely to give notice in the area
To any news media that has requested such notice
(Wis. Stat. § 19.84(1))
The statute specifies that you have to communicate it to the news media. They don't have to print (or broadcast) it. (Martin v. Wray, 473 F. Supp. 1131 (1979)
It is also recommended that agendas be physically (not just virtually) posted in 2-3 places, and the same places every time, so citizens know that's where they are posted. Public Notice—What and When?
Must include time, date, place, and subject matter
May include comment period
At least 24 hours prior to meeting
If impossible or impractical, shorter notice is OK, but NEVER less than 2 hours. (Wis. Stat. § 19.84(2)-(3))
It isn't a good idea (and the Attorney General's office advises against) to have a catch-all phrase such as "other business" or "old business" in the agenda. Discussion of last minute items can lead to open meetings law violations. If emergency items arise, it is better to amend the meeting notice, and post it at least 2 hours before the meeting. Or even better, postpone consideration until the next meeting. Discussion, and particularly, voting, must be limited to subjects listed in the public notice. However, if the agenda includes a public comment period, the board may briefly discuss, but not vote on, issues raised by the public during that period.
13 exemptions to open session requirement Permit, but do not require closed sessions
(Wis. Stat. § 19.85) Image Credit
A library board (or any other board, for that matter) is never required to go into closed session. Closed sessions are permitted, not required, and only for the reasons discussed below.
Exemptions which permit closed sessions
There are several most likely to apply to library boards: Considering employment, promotion, compensation or performance evaluation of a public employee. (c)
(For the full list see Wis. Stat. § 19.85(1))
The exemption is for considering these things for a particular employee, not for discussion of general personnel policies or salary scale. For example, it allows for closed session to discuss qualifications of and salary to offer a specific applicant, but NOT to discuss the qualifications and salary range for the position in general. It allows for closure to determine which employees to lay off, or whether to renew an employee's contract, but NOT to discuss whether to reduce or increase staffing, in general.
Exemptions—closed sessions—Library Boards [next]
Considering dismissal, demotion, licensing or discipline of a public employee. (b) Must give employee notice of hearing AND meeting at which final action may be taken
Employee notice must allow employee to request that hearing/meeting be held in open session (in which case you must comply)
(For the full list see Wis. Stat. § 19.85(1)) Image Credit
If employee requests permission to attend the closed session you need not comply (although the board could choose to)
Deliberating or negotiating purchase of public properties, investing of public funds, or other specified public business when competitive or bargaining reasons require closed session. (e)
"Other specified business" can include developing strategies for collective bargaining, BUT discussion and ratification of collective bargaining agreement must be held in open session. (81 Op. Att'y Gen. 139, 141 (1994).
Considering the following if their discussion in public is likely to have adverse affect upon the reputation of anyone referred to in them (f):
Financial, medical, social, or personal histories or disciplinary data of specific persons,
Preliminary consideration of specific personnel problems, or
Investigation of charges against specific persons. (For the full list see Wis. Stat. § 19.85(1))
However, this exemption is extremely limited. It applies only where a member of the body has actual knowledge of information that can have substantial adverse affect. (74 Op. Att'y Gen. 70, 72.)
Required procedures for closed session
1. Meeting notice must indicate contemplated closed session, subject matter of closed session, and specific statutory provision.
(Wis. Stat. § 19.84(2))
These steps are all clearly listed in Trustee Essential #14 (http://dpi.wi.gov/sites/default/files/imce/pld/pdf/te14.pdf)
Required procedures for closed session, cont'd
2. Convene in open session.
3. Board presiding officer must announce the intention to go into closed session and the purpose of doing so.
(Wis. Stat. § 19.85(1))
4. Board presiding officer must announce specific section of the law, by statute number and section, and announcement must be recorded in meeting minutes.
5. Motion, second, and roll call vote to reconvene in closed session.
6. Attendance limited to board, necessary staff, and anyone whose presence is required to conduct the closed session business.
(Wisconsin Open Meetings Law Compliance Outline, page 11)
7. Discussion in closed session limited to subject announced.
8. Votes pertaining to the closed session subject MAY be taken in closed session BUT it is better practice to take votes after reconvening in open session.
(Wisconsin Open Meetings Law Compliance Outline, page 16)
9. Votes taken in closed session MUST be recorded in the minutes and open to public inspection.
(Wis. Stat. § 19.88)
10.	May reconvene in open session only IF noticed in public notice.
If there was not advance notice, must wait at least 12 hours to reconvene in open session.
(Wis. Stat. § 19.85(2))
Meeting notice (agenda) including notice of closed session, and intent to reconvene in open session. (See item #12 in this agenda.)
(from Trustee Essentials, TE #4: PDF)
Examples, cont'd
Language for Board President: "I will now entertain a motion to reconvene in closed session to consider the performance evaluation and compensation of the library director as authorized by Wisconsin Statutes Section 19.85(1)(c)." Frequently Asked Questions
Does "open meeting" literally mean the door must be open?
Must the room an open meeting is held in be accessible by persons with disabilities?
Can we meet by telephone?
Can we meet by email?
Frequently Asked Questions, cont'd
Can we discuss topics brought up in the "public comment" period? Can we vote on topics brought up in the "public comment" period? May a citizen record our meetings? Can we vote during closed sessions? Frequently Asked Questions, cont'd
Should we take minutes during closed sessions? Who enforces the open meetings law? What are the consequences of violating the open meetings law? Does "open meeting" mean the door must be open? [next]
No. The definition is "a meeting which is held in a place reasonably accessible to members of the public and open to all citizens at all times." A closed door is still reasonably accessible. Image Credit
A closed, but unlocked, room is reasonably accessible. It is also probably a good idea to post a sign on the closed door that an open meeting of the library board is taking place within.
Yes. 19.82(3) states that state government bodies must meet in a room "which enables access by persons with functional limitations." In order to comply with the sprit of the open meetings law, local bodies, should also, whenever possible, meet in buildings and rooms that are accessible without assistance.
(Wisconsin Open Meetings Law Compliance Outline, page 10-11.) Can we meet by telephone? [next]
Yes. Telephone conference calls meet the definition of a meeting subject to the open meetings law. To comply, a conference call meeting must be properly noticed to the public, and the public must be provided with a means to monitor the conference. (69 Op. Att'y Gen 143, 145.) Image Credit
A meeting which has been properly noticed, and is in an accessible location, which one person attends by telephone is meeting all the open meeting requirements. Can we meet by email?
No. Since it isn't possible for the public to attend a meeting held entirely by email, such a meeting would be in violation of the open meetings law. Emailing and replying to the entire board about matters within the board's authority, even if not intended to take the place of a meeting, could be construed as carrying on private debate and discussion of matters that belong at public meetings, open to public scrutiny. Therefore, the Wisconsin Attorney General discourages board members from discussing matters via email. (Wisconsin Open Meetings Law Compliance Outline, page 6-7.) Emailing information, such as agenda, or other background material, would not violate the law. (As long as the meeting is also properly noticed.)
Can we discuss topics brought up in the "public comment" period?
You may discuss topics raised by the public, but only in the public comment period.
(Wis. Stat. § 19.83(2), 19.84(2))
It may be wise to limit the amount of time citizens may speak during the public comment period, and end with "Thank you for your comments. The board may consider them at a future meeting."
Can we vote on topics brought up in the "public comment" period?
You may not vote on topics raised by the public during the public comment period. You may only vote on those topics described in the public notice. ((Wis. Stat. § 19.83(2), 19.84(2))
May a citizen record our meetings? [next]
Yes. You must make a reasonable effort to accommodate anyone wishing to record, film, or photograph the meeting, as long as it doesn't interfere with the meeting, or the rights of the members. (Wis. Stat. § 19.90)
But, the board may disallow recording of a closed session. (66 Op. Att'y Gen. 318, 325 (1977).)
Can we vote during closed sessions?
Votes pertaining to the closed session subject MAY be taken in closed session.
BUT it is better practice to take votes after reconvening in open session.
Should we take minutes during closed sessions? [next]
Yes. The motions and roll call votes of EACH meeting of a governmental body must be recorded. (Wis. Stat. § 19.88(3))
Minutes must be available for public inspection, under the Wisconsin Public Records Law.
In some cases, for example, purchasing property, you may be able to keep the records (minutes) of the meeting closed, until the reason for keeping them confidential has passed. Who enforces the open meetings law?
The Attorney General, or,
The district attorney of the county in which the violation occurs, upon receipt of a verified complaint from an individual.
(Wis. Stat. § 19.97)
What are the consequences of violating the open meetings law?
Any member of the board who knowingly attends a meeting in violation, is subject to forfeiture of $25-$300 for each offense. A board member is not legally liable if he or she voted against the actions that caused the violation.
(Wis. Stat. § 19.96)
Not only is the member of the board personally responsible to the payment described above, BUT, the governmental body can not reimburse a member for a forfeiture incurred as a result of a violation of the Open Meetings Law. (66 Op. Att'y Gen. 226 (1977))
What are the consequences of violating the open meetings law? cont'd
A court may void board actions taken in a meeting held in violation of the open meetings law.
(Wis. Stat. § 19.97(3))
www.legis.state.wi.us/statutes/Stat0019.pdf
Trustee Essential #14: The Library Board and the Open Meetings Law (DLTCL)	dpi.wi.gov/pld/te14.html
Open Meetings Law and Library Board Closed Sessions (DLTCL)
http://dpi.wi.gov/pld/boards-directors/public-records/open-meetings-law Resources, cont'd
Wisconsin Open Meetings Law: a Compliance Guide (Attorney General's Office)
http://www.doj.state.wi.us/AWP/OpenMeetings/2005-OML-GUIDE.pdf
Understanding and Complying With Wisconsin's Open Meetings Law (League of Wisconsin Municipalities)
www.lwm-info.org/legal/2005/04april/comment.html
Resources, cont'd
Frequently Asked Questions - Open Meetings Law (League of Wisconsin Municipalities)
www.lwm-info.org/legal/faq/faqindex.html#openmtg
Wisconsin Open Meetings Law (UW Extension-Fact Sheet)
www.uwex.edu/lgc/program/pdf/fact1-03.pdf
State Programs, Revenue and Administration (SPAR) unit
ww.doj.state.wi.us/dls/spar.asp#contact
You can contact the SPAR unit with specific questions on the Open Meetings Law by calling the Lead Legal Secretary of the SPAR unit of the Department of Justice at 608-266-3952. One of the unit's attorneys will be in contact with you. You may also write to SPAR, at: Wisconsin Department of Justice, Legal Services Division, Post Office Box 7857, Madison, WI 53707-7857. When writing, indicate that your concern relates to open meetings. Thank You!
Cheryl Becker: cbecker at scls.lib.wi.us or 608-246-7973
John DeBacher, DLTCL: john.debacher at dpi.state.wi.us or 608-266-7270
Your municipality's legal counsel
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