Opinion ID: 2624422
Heading Depth: 2
Heading Rank: 1

Heading: the requested records are public

Text: ¶ 16 The AGRC begins its argument by stating that the records it maintains are not public under GRAMA because a plain reading of Utah Code section 72-5-304(3) does not so characterize them. However, the question is not whether the records maintained by the AGRC are public, because they presumptively are, but whether they remain public in the face of a conflicting state statute. ¶ 17 Under GRAMA [a] record is public unless otherwise expressly provided by statute. Utah Code Ann. § 63G-2-201(2) (2008). Further, GRAMA provides that it governs disclosure of government records, unless another statute's categorization of a record or limitations on disclosure of the record directly conflict with GRAMA. Utah Code Ann. § 63G-2-201(6). So [w]hile the other statute's `specific provisions' will control in the event of an irreconcilable conflict, GRAMA's provisions will still apply so long as they are `not inconsistent with the [other] statute.' Utah Dep't of Pub. Safety v. Robot Aided Mfg. Ctr., Inc., 2005 UT App 199, ¶ 11, 113 P.3d 1014 (alteration in original) (quoting Utah Code Ann. § 63-2-201(6)(b)). In this case, we examine two statutes for any express categorization of the requested records as nonpublic or other requirements for or limitations on disclosure that directly conflict with GRAMA. We first address section 63F-1-506, which created the AGRC; then we address section 72-5-304(3), which specifically mandates the creation and maintenance of records related to R.S. 2477 rights-of-way on the SGID. ¶ 18 In construing statutes, this court looks to the statute's plain language to discern the legislative intent, Gohler v. Wood, 919 P.2d 561, 562-63 (Utah 1996), by giving the words of the statute their plain, natural, ordinary, and commonly understood meaning. State v. Navaro, 83 Utah 6, 26 P.2d 955, 956 (1933). Only where such a reading renders the statute ambiguous will we look beyond its plain language. See Gohler, 919 P.2d at 563; see also World Peace Movement of Am. v. Newspaper Agency Corp., 879 P.2d 253, 259 (Utah 1994). ¶ 19 First, section 63F-1-506(2) requires the AGRC to provide geographic information system services to state agencies..., [the] federal government, local political subdivisions, and private persons pursuant to the rules and policies established by the Division of Integrated Technology; manage the SGID; and establish a standard format, lineage, and other requirements for the database. Utah Code Ann. § 63F-1-506(2). This language does not purport to restrict any information maintained by the AGRC, but rather mandates that the AGRC provide its information to both government agencies and private persons. This provision does not expressly classify the records as nonpublic and does not conflict with GRAMA provisions and, therefore, does not bar GRAMA's application. ¶ 20 Next, we turn to Utah Code section 72-5-304. This section requires the AGRC to create and maintain a record of R.S. 2477 rights-of-ways on the Geographic Information Database, that shall be based on information maintained by the Department of Transportation and ... other data available to or maintained by [the AGRC], as well as information regarding R.S. 2477 rights-of-way, provided by agencies and political subdivisions of the state when such information is available. Utah Code Ann. § 72-5-304(3) (Supp.2008). Again, the plain language of this provision does not purport to restrict access to any information maintained by the AGRC related to R.S. 2477 rights-of-way, nor does it conflict with the provisions of GRAMA. ¶ 21 Hence, we conclude that neither of these statutes contain any language designating records maintained by the AGRC as nonpublic or restricting access to them. Therefore, GRAMA's presumption that the government records are public remains intact, and GRAMA's provisions govern their disclosure. Based on this determination, we move to an analysis of the exemptions claimed by the AGRC under GRAMA to determine whether the AGRC may restrict disclosure of the public records.