Every request for information concerning information about someone other than the requester should be treated as a FOIL request unless the requestor can show that the information is being requested as part of an official town activity.
Town council members engaged in personal investigations is not official town business. Not everything in the public record is subject to FOIL. And an FOIL request is rather simple.
What I would like to know is whether she made the request for records as a strawman for Ted. If so, then it is Ted trying to get around the FOIL process by using her position as a member of the council.
If that is the case, then both of them should be prosecuted.