The Detainee Report and the UK Government Flouting FOIA Law

Back in September, as I explained in a previous post, I filed a Freedom of Information Act (FOIA) request with the UK government in an attempt to obtain a long-withheld report on British spies' complicity in torture and extraordinary rendition. The government repeatedly ignored my requests — refusing to even acknowledge them, as obligated under the law — but finally published the report in December.

As I suspected it would, the so-called 'Detainee Inquiry' report shined a light on the dubious involvement of the UK's security services in brutal interrogation tactics and kidnapping methods carried out by US government operatives in the aftermath of the September 11 attacks. British agents, it found, were under no obligation to report breaches of the Geneva conventions and turned a "blind eye" to the torture of detainees held in foreign prisons.

The report was put together by the Detainee Inquiry as a preliminary report and, unfortunately, it only scratched the surface. Headed by retired judge Sir Peter Gibson, the inquiry was originally supposed to dig deep into the allegations of complicity in the abuses. However, it was postponed in 2012 amid controversy because the government said that it clashed with ongoing police investigations into some of the same cases. Justice Secretary Ken Clarke promised that an independent judge-led inquiry would continue in time, but the government suddenly pulled a policy reversal in December and now says the issues will be dealt with (or should I say, swept under the rug) by the largely toothless parliamentary intelligence and security committee — a move that has been strongly criticised by human rights groups, lawyers, and two United Nations special rapporteurs.

Aside from pointing to substance of the Gibson report, though, I wanted address something else here: that is, he dismal conduct of the government in ignoring my original request to obtain it. The Cabinet Office repeatedly failed to respond to my inquires for a period of about five months, even after the Information Commissioner's Office (ICO) got involved. (The ICO is the public body that enforces access to information legislation in the UK.) Under the terms of the FOIA law, the government should have responded to my initial request within 30 days. Instead, it chose not to respond at all — not even an acknowledgement; nothing. I've never experienced anything like that, and I have submitted quite a lot of FOIA requests in my time.

It seemed that the Cabinet Office was clearly flouting its legal obligations, so I decided to submit a formal complaint with the ICO. Last month, the ICO issued a "decision notice" in my case (see below), finding in my favour that the government broke the law under section 10 of the Freedom of Information Act by ignoring my request. The ICO threatened to pursue contempt of court action against the government in the High Court if it did not contact me within a further 35 days. Unsurprisingly, earlier this month, about a day before the deadline was due to expire, the Cabinet Office finally responded — claiming "oversights" were the cause of the long delay while having the cheek to open its letter by referring to my "recent" FOIA request. The request was submitted half a year prior.

Cabinet officials were contacted on several occasions about my request over this six-month period; they confirmed to the ICO over the phone that they had received it, and were then warned about potential "enforcement action." Yet they continued to not respond to me. It was not until the government was formally threatened with contempt in the decision notice that it acted. And by then, the Detainee Inquiry report that I was originally seeking had been released publicly anyway.

I have no idea whether the government deliberately ignored my request in a bid to delay releasing the report, so that it could release it later on its own terms. But frankly that does not seem like a far-fetched possibility, especially given that some public bodies, like London's Metropolitan Police, have admitted treating FOIA requests from journalists as "high risk" — even though all requests are supposed to be treated "applicant and motive blind." Either way, whether the failure to respond was calculated or just down to total incompetence, I have certainly not come away from this debacle with a sense that the government cares much about fulfilling its legal responsibilities in the realm of transparency.

For that reason, there is a satisfaction in seeing the government get reprimanded by the ICO for its unlawful conduct in this case. But ultimately there is a kind of depressing futility about the finding. The decision notice will go against the government — damaging the Cabinet Office's FOIA credentials with the Information Commissioner, especially if other cases such as this continue to stack up. (The Cabinet could be placed on the ICO's "monitoring programme" if it keeps egregiously flouting its FOIA obligations.) However, that doesn't really count for much in practice. I would like to see the ICO given much stronger powers to enforce compliance with FOIA law — the power to dish out heavy fines for flagrant violations and inexplicably extreme delays in responding to people. Otherwise it seems highly likely that the government and other public bodies will continue to be content to ignore requests whenever it suits them to do so.

UPDATE, 27 March 2014: As a commenter below has pointed out, it turns out that the Cabinet Office has in fact already been placed on the "monitoring programme" by the Information Commissioner's Office after "serious shortcomings" were identified in its responses to freedom of information requests. The ICO announced in January, while my complaint was still ongoing, that it would be examining the Cabinet's responses to requests received between 1 January and 31 March 2014. The ICO claims that "failure to show signs of improvement during this period may result in enforcement action."

The Torture & Rendition Report the UK Government Hasn't Published

Last year, the UK government was presented with a preliminary report about an inquiry into British security services' alleged role in the extraordinary rendition and torture of terror suspects. The government said at the time that it would make the report public — but it has never surfaced.

The report was produced as part of the so-called 'Detainee Inquiry', set up by prime minister David Cameron in 2010 to investigate allegations of British security agencies' involvement in the mistreatment of individuals accused of terror offences. Spy agency MI6, for instance, has been blamed for helping to facilitate the abduction and subsequent alleged torture of a Libyan Islamist and his pregnant wife, who were covertly 'rendered' from Bangkok and reportedly taken to a Libyan prison run by the Gaddafi regime in 2004.

Headed by retired judge Sir Peter Gibson, the Detainee Inquiry was supposed to look into these allegations and others. It was scrapped in 2012 amid controversy because the government said that it clashed with ongoing police investigations into some of the same cases. But a preliminary report was produced by the inquiry and sent to the prime minister on 27 June 2012. At the time, the government issued a statement saying that the report focused on "preparatory work to date, highlighting particular themes or issues which might be the subject of further examination." Justice Secretary Ken Clarke said that the government was committed to publishing "as much of this interim report as possible."

Almost 18 months on, however, where is the preliminary report? That is exactly what I have been trying to find out. And the UK government is not returning my emails.

In September, I sent a Freedom of Information Act request seeking a copy of the report to the government's Cabinet Office. Under the FOIA, the government has 20 working days to issue a response. 31 working days have now passed and I have sent three separate emails related to the request. I have received nothing in response — not even an acknowledgement informing me that my request has been received. This means that the government is violating its legal obligations, according to an official I consulted at the Information Commissioner's Office, the public body that enforces access to information legislation in the UK.

I submit quite a lot of FOI requests, and I can't think of another occasion when a government department has flat-out ignored a request in this way. It is very unusual. Normally, the procedure is that you will receive an acknowledgement within a few days. And a couple of weeks later the respective department will either send you the information or refuse to release it, usually citing some flimsy national security secrecy exemption.

Notably, the chap who runs the website Spy Blog has also previously attempted to obtain a copy of the preliminary report. His efforts have so far been stonewalled. But unlike me, Spy Blog has at least been privileged enough to receive responses from the Cabinet Office, most recently in July. The Cabinet refused to disclose the report to the website, claiming that officials were busy "clearing the report for publication" and adding that they expected that it could be published "in the autumn, although no date has been set."

It is not clear why the Cabinet Office has needed almost a year and a half to "clear" a report for public consumption. At best, it looks to me like a case of incompetence and bureaucratic inefficiency; at worst, it is a red herring being deployed to delay the release of controversial information for political convenience. Either way, the delay suggests that there could be some interesting details contained in the report. And the government is running out of excuses to postpone publication. Indeed, under section 22 of the Freedom of Information Act, the government can decline to disclose information requested if it is already intended for future release. However, Ministry of Justice guidance on the Section 22 exemption explicitly states that:

These qualifications recognise that sometimes there will be an overriding public interest in the information being released prior to the intended publication date. Public authorities should not be able to avoid putting information in the public domain by adopting unreasonable publication timetables or an 'intention' to publish where there is little prospect of that happening within a reasonable timescale.

Given the seriousness of the allegations about UK security agencies' role in facilitating extraordinary rendition and torture, there is evidently a very strong public interest case for this preliminary report to be immediately released under the Freedom of Information Act. That is especially true given the inexplicably lengthy delay that we have already had to endure.

It's worth also pointing out that despite the sort of behaviour detailed above, the government continues to audaciously insist it is committed to transparency. Just last week the Cabinet Office was proclaiming "wide-ranging new commitments to bring more of the benefits of transparency into people’s everyday lives." Cabinet minister Francis Maude was quoted as saying that "transparency is an idea whose time has come."

Unfortunately, the section of Maude's own department responsible for implementing transparency does not appear to have received the memo — and is currently flouting the Freedom of Information Act in a case involving the withholding of important information that the public clearly has a right to know.

I have lodged a formal complaint about the Cabinet Office's conduct with the Information Commissioner's Office — so watch this space.

UPDATE, 4 December 2013: Late last month, the Information Commissioner's Office replied to the complaint I filed about the UK government's non-response to my request that it release the rendition/torture report. An official from the ICO said he had contacted the government's Cabinet Office to confirm that my request had been received and to give the government a 10-day deadline to contact me. The ICO reminded the government of its obligations under the Freedom of Information Act and noted that it "may consider taking enforcement action" should similar complaints arise (read the ICO's correspondence here).

However, despite this light reprimand from the ICO, incredibly I've still received no response from the government about the rendition report. The 10-day deadline expired yesterday and I've heard nothing — I've not yet so much as received an acknowlegement that my initial request is being dealt with, even though it was submitted more than two months ago (the government is supposed to respond within 20 working days; it's now been more than 50). This means that the Cabinet Office, which likes to tout its transparency credentials, is not only actively flouting its obligations under the Freedom of Information Act — it has also now failed to act on a formal request made by the authority that enforces the FOIA law, the ICO. Before the end of the week, I'll be following up my complaint with the ICO in the hope that more serious action can be taken. Of course, I'll post further updates here with any new developments in this strange case as and when they arise.

UPDATE, 29 December 2013: The government has released the Detainee Report today; the Guardian reports that it reveals how "MI6 officers were under no obligation to report breaches of the Geneva conventions and turned a 'blind eye' to the torture of detainees in foreign jails, according to the report into Britain's involvement in the rendition of terror suspects." I am still pursuing my complaint against the Cabinet Office for its handling of my FOIA request.

UPDATE, 26 March 2014: In response to my complaint, the Information Commissioner's Office issued a "decision notice" stating that the Cabinet Office breached section 10 of the Freedom of Information Act in ignoring my request. More details here.