Court Opinion

ID: 9950824
Source: CourtListenerOpinion
Date Created: 2024-03-14 20:10:21.25019+00
Date Added: 2024-06-11T14:36:51.095709
License: Public Domain

Cook Out The Vote, Inc. v Board of Elections in the
                      City of N.Y.
               2024 NY Slip Op 30761(U)
                     March 11, 2024
           Supreme Court, New York County
        Docket Number: Index No. 152304/2022
                  Judge: Arlene P. Bluth
Cases posted with a "30000" identifier, i.e., 2013 NY Slip
 Op 30001(U), are republished from various New York
 State and local government sources, including the New
  York State Unified Court System's eCourts Service.
 This opinion is uncorrected and not selected for official
                       publication.
                                                                                                                     INDEX NO. 152304/2022
  NYSCEF DOC. NO. 31                                                                                           RECEIVED NYSCEF: 03/11/2024

                                   SUPREME COURT OF THE STATE OF NEW YORK
                                             NEW YORK COUNTY
            PRESENT:             HON. ARLENE P. BLUTH                                            PART                              14
                                                                                      Justice
            ---------------------------------------------------------------------------------X   INDEX NO.          152304/2022
                COOK OUT THE VOTE, INC.,
                                                                                                 MOTION DATE        03/04/20241
                                                         Petitioner,
                                                                                                 MOTION SEQ. NO.         001
                                                 -v-
                BOARD OF ELECTIONS IN THE CITY OF NEW YORK,
                And RODNEY L. PEPE-SOUVENIR, SIMON SHAMOUN,
                JOSE MIGUEL ARAUJO, MICHAEL J. COPPOTELLI,
                JENNY LOW, GINO A. MARMORATO, JODI MORALES,                                        DECISION + ORDER ON
                KEITH SULLIVAN, PATRICIA ANNE TAYLOR, FREDERIC                                           MOTION
                M. UMANE all in their official capacities
                as Commissioners of Elections,

                                                         Respondents.
            ---------------------------------------------------------------------------------X

            The following e-filed documents, listed by NYSCEF document number (Motion 001) 1- 13, 14, 15, 16, 17,
            18, 19, 20, 21, 22, 23, 24, 25, 26, 27, 28, 29
            were read on this motion to/for                                            ARTICLE 78 (BODY OR OFFICER)                .

                      The petition to annul respondent Board of Elections in the City of New York (“Board”)’s

            determination denying petitioner’s Freedom of Information Law (“FOIL”) request is decided as

            described below.

            Background

                      Petitioner contends it is a non-partisan 501(c)(3) nonprofit that advocates for a better

            voting experience. It contends it sent a FOIL request to the Board seeking information about

            voters’ check-in information, including the date and time of the voters’ arrival. Petitioner

            1
             The Court observes that this proceeding was pending before another judge since 2022 and assigned to the
            undersigned on March 4, 2024. In any event, the Court apologizes for the long delay in the resolution of this
            proceeding.
                152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW                        Page 1 of 7
                YORK ET AL
                Motion No. 001

                                                                           1 of 7
[* 1]
                                                                                                   INDEX NO. 152304/2022
  NYSCEF DOC. NO. 31                                                                         RECEIVED NYSCEF: 03/11/2024

            observes that the Board maintains this information as part of its responsibility to administer

            elections. It contends that the Board denied their FOIL request in an initial determination dated

            November 8, 2021. In that letter, the Board noted that:

                   “I am writing in response to your ongoing request for dates and timestamps of voter
                   check-ins. Please know that we do not have this information in a form that is
                   reportable to the public. Yes, our poll books record the time and date a voter checks
                   in, but we do not generate a report of that information. Moreover, a voter check-in
                   may not necessarily correlate to the voter casting the ballot. Please note this
                   information is specifically not amassed to maintain the secrecy of the ballot”

                   As to your request for the data used to produce the wait-time display, the
                   information is transmitted from an app which our site coordinators are directed to
                   use. It essentially asks them to visually gauge the lines and use either a red, yellow
                   or green button to log what they see. It is contemporaneous, unscientific and
                   observational. The information is not confirmed or reviewed for accuracy or
                   aggregated, as it is not part of our statutory mandate” (NYSCEF Doc. No. 6).

                   Petitioner then appealed this initial denial in November 2021 and argued that the Board

            has the records in question and that they are subject to disclosure under FOIL (NYSCEF Doc.

            No. 7). The Board denied this appeal and observed that “This information is collected and stored

            cumulatively. That is, the number of check-ins by poll site is available however, the data is not

            reported on day-to-day basis - as reflected by the Board of Elections website. In order to give

            you numbers for each day for each poll site, someone would have to export the number for each

            day, for each poll site and create a new spreadsheet. As you know, the FOIL rules do not require

            us to do that. Additionally, these numbers are not retained, as this is not part of a mandated

            function under the Election Law, so we do not have any numbers for 2019 or 2020” (NYSCEF

            Doc. No. 8). The Board added that “To the extent that we can give you numbers for each

            individual poll site, we will provide you with that information for early voting during the 2021

            General Election (id.).

             152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW         Page 2 of 7
             YORK ET AL
             Motion No. 001

                                                           2 of 7
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  NYSCEF DOC. NO. 31                                                                         RECEIVED NYSCEF: 03/11/2024

                   Petitioner contends that the Board had no reasonable justification for the denial of its

            FOIL request. It emphasizes that the Board did not cite to any specific provisions of FOIL

            (under the Public Officers Law). Petitioner argues that the Board’s contention that it would have

            to create new records in order to satisfy the FOIL request is misplaced as the Board admits it has

            the date and time information.

                   Petitioner points out that the Board uses voter check-in data to create reports which are

            then publicly disseminated and that petitioner simply wants the underlying data for these reports.

            Petitioner maintains that the fact that the number of people who check-in may not directly

            correlate to the number of votes case is of no moment. And it also rejects the Board’s assertion

            that the secrecy of the ballot justifies the denial of the FOIL request. Petitioner points out that

            voter registration and voter history records are readily available through FOIL. It argues that data

            about when voters checked in does not reveal the contents of the ballot.

                    In opposition, the Board observes that petitioner’s FOIL request has changed multiple

            times. Initially, petitioner sought the numbers of votes cast during early voting, the number of

            votes cast on election day and the number of votes cast by absentee ballot, all for the 2021

            primary election for mayor. The Board insists that petitioner then changed its request in October

            2021 to seek the date and time votes were cast in the primary election for mayor. Then, petitioner

            changed its request again to concern check-ins, which the Board argues is a different data set

            from votes. The Board contends that it is unclear which FOIL request petitioner seeks in this

            proceeding.

                   The Board notes that check-in data is hosted by third parties and is accessible only by

            four senior executive staff. It observes that it does not directly correlate with voting data because

            a person may decide to check-in but not to actually vote; alternatively, the Board points out that a

             152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW           Page 3 of 7
             YORK ET AL
             Motion No. 001

                                                           3 of 7
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                                                                                                    INDEX NO. 152304/2022
  NYSCEF DOC. NO. 31                                                                         RECEIVED NYSCEF: 03/11/2024

            person could vote by mail and not check-in anywhere. It emphasizes that this data is not widely

            available for privacy reasons and is used to optimize poll locations and times.

                    The Board observes that requests for this information to the third-party vendor only

            generate data sets per hour and they cannot span multiple days. It maintains that the data sets also

            do not differentiate between early voting sites and election day sites and so the Board has to

            manually manipulate the date to get this information. The Board observes that in order to

            produce early voting check-in data by polling site by day for each election from 2019 through

            2021, reports would have to be run for each hour of each day of early voting. It insists this

            would take over 50 hours to produce such a report and it could not be contracted out as only four

            senior executives have the authority to access this data.

                    The Board argues that petitioner has not properly appealed the denial of its FOIL request

            as petitioner kept changing its FOIL requests. It claims that producing the records would be

            unduly burdensome. The Board also argues that revealing this information could constitute an

            unwarranted invasion of voters’ personal privacy because this information could reveal how

            individual voters cast their ballots.

                    In reply, petitioner emphasizes that the initial denial and the denial of its appeal by the

            Board both addressed check-in data. It maintains that this shows this controversy is ripe for

            adjudication and the Court possesses subject matter jurisdiction. Petitioner insists that it did not

            make multiple requests and instead sought to refine its demand with the Board.

                    Petitioner argues that is has exhausted its administrative remedies and that the Board

            waived its personal privacy and burdensome arguments by not raising it below. It contends that

            the Board did not show that any exceptions to disclosure apply here.

             152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW          Page 4 of 7
             YORK ET AL
             Motion No. 001

                                                           4 of 7
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                                                                                                   INDEX NO. 152304/2022
  NYSCEF DOC. NO. 31                                                                         RECEIVED NYSCEF: 03/11/2024

            Discussion

                   As an initial matter, the Court observes that contrary to petitioner’s arguments, its FOIL

            request materially changed over time. The initial request dated August 30, 2021 sought “In the

            2021 Primary Election for Mayor, for each AD-ED, the number of votes cast during early voting

            (if possible on each day of early voting), the number of votes cast on Election Day, the number

            of votes cast by absentee ballots” (NYSCEF Doc. No. 4).

                   The subsequent discussion resulted in an email from the Board on November 1, 2021 in

            which it told petitioner that it does not have “Cast Vote records for the 2020 general election as

            such records were only available for ranked choice voting which was utilized in the 2021

            primary election” (NYSCEF Doc. No. 5 at 5 of 12). On that same day, counsel for petitioner

            asks about information related to wait times at poll places (id. at 4 of 12).

                   The Board responded on November 3, 2021 that it does not have information about the

            exact time when an individual casts their vote (id. at 2 of 12). In response, petitioner asks for

            check-in information for the first time as that “might have a date or timestamp information” (id.).

            Then, after the Board issued its first denial on November 8, 2021, petitioner’s counsel demanded

            “We are seeking information about when people arrive at poll sites so that we can understand

            where the early voting is being used and on what days. We would consider the request fulfilled if

            we were provided with check-in information on a poll site level” (id. at 1 of 12).

                   Clearly, information detailing the number of votes cast is significantly different from

            information about check-in information. As the Board points out, a voter may check-in but not

            actually vote or a voter may vote by mail and not check-in at all. And while petitioner contends

            the check-in information will likely correlate to the votes cast (and that may well be true), the

             152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW         Page 5 of 7
             YORK ET AL
             Motion No. 001

                                                           5 of 7
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  NYSCEF DOC. NO. 31                                                                         RECEIVED NYSCEF: 03/11/2024

            Board pointed out that the check-in information is stored with third parties and only accessible

            by four senior officials.

                   The question in this proceeding is how to address the changing requests and the fact that,

            as petitioner correctly argues, respondents never cited privacy or that the demand was

            burdensome as justifications for the not producing documents. It is axiomatic that this Court

            cannot consider arguments that were not part of the administrative record (Molloy v New York

            City Police Dept., 50 AD3d 98, 100, 851 NYS2d 480 [1st Dept 2008]). The Court therefore

            orders, just as in Molloy, that this proceeding be remanded back to the Board so that there can be

            a fully developed record about the information petitioner seeks (id.). To be clear, the purpose of

            this remand is for petitioner to clarify exactly what it wants in light of these papers and for the

            Board to respond directly to that clarification.

                   Petitioner could, of course, simply file a new FOIL request now that it has gained

            substantial details about how this information is stored.

            Summary

                   In this Court’s view, the parties attempted to work together to identify data sought by

            petitioner that could be disclosed pursuant to FOIL. But the communications between the parties

            showed that petitioner changed its request from focusing on votes cast to check-in information,

            two separate data sets. There is little doubt that the record before the Board was not fully

            developed as is evidenced by the arguments raised by the Board in this record. For instance,

            petitioner did not have a chance to address the Board’s arguments about how the information is

            stored or that these records are only accessible by a limited number of officials.

             152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW          Page 6 of 7
             YORK ET AL
             Motion No. 001

                                                           6 of 7
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  NYSCEF DOC. NO. 31                                                                             RECEIVED NYSCEF: 03/11/2024

                    Also motivating the Court’s decision is a desire to avoid the disclosure of records that

            could reveal how an individual person voted in a primary or general election. The Board

            attached newspaper articles detailing how researchers were able to identify how specific people

            voted through publicly available information (NYSCEF Doc. No. 23 and 24). But, as noted

            above, the Court cannot address this argument because it was not part of the administrative

            record developed below.

                    Accordingly, it is hereby

                    ORDERED that the petition is remanded back to the Board of Elections in the City of

            New York for further proceedings consistent with this decision.

                    3/11/2024                                                            $SIG$
                      DATE                                                       ARLENE P. BLUTH, J.S.C.
             CHECK ONE:               X   CASE DISPOSED                  NON-FINAL DISPOSITION

                                                                                                     □
                                          GRANTED             DENIED     GRANTED IN PART              X     OTHER

             APPLICATION:                 SETTLE ORDER                   SUBMIT ORDER

                                                                                                     □
             CHECK IF APPROPRIATE:        INCLUDES TRANSFER/REASSIGN     FIDUCIARY APPOINTMENT              REFERENCE

             152304/2022 COOK OUT THE VOTE, INC. vs. BOARD OF ELECTIONS IN THE CITY OF NEW                Page 7 of 7
             YORK ET AL
             Motion No. 001

                                                            7 of 7
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