# U ni te d S ta te s Co ur t of A pp ea ls

For the Eig hth Circu it

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No. 1 5- 12 34

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Am eri can Farm

Bu reau Fed erat io n; Nati on al Po rk Pro du cers Co un ci l,

ll ll ll ll ll ll ll ll ll ll l Pla in ti

ff s - Ap pe ll an ts

,

v.

U.S. Env iro nm en ta l Pr ot ect io n Ag en cy ; Gi na McC art hy, A dm in is tra to r of th e U.S.

Env iro nm en ta l Pr ot ect io n Ag en cy ,

ll ll ll ll ll ll ll ll ll ll l Defe nd

an ts - App el le es

,

Fo od & W at er Watch ; En vi ro nm en ta l In te gr it y Pro ject; Iowa Cit iz en s fo r Co m m un it y Im pr ov em en t,

ll ll ll ll ll ll ll ll ll ll l In te rv en or Defe nd an ts - App el le es ,

----- ----- ----- ----- ----- -----

Nati on al Fed erat io n o f In de pe nd en t Bu si ne ss Sm al l Bu si ne ss Lega l Ce nt er,

ll ll ll ll ll ll ll ll ll ll l

Amicu s o n Beh al

f o f Ap pe ll an t(s )

.

__ __ __ __ __ __

App eal fro m

Uni te d S ta te s Di st ric t Co ur t
fo r th e Dis tri ct of M in ne so ta - Mi nn eap ol is

__ __ __ __ __ __

Su bm it te d: Octo be r 22 , 20 15

Fil ed : Se pt em

be r 9, 2 01 6

__ __ __ __ __ __Befo re LOKEN, MURPHY, and COLLOTON, Cir cu it Ju dg es

.

__ __ __ __ __ __

COLLOTON, Ci rcu it Ju dg e.

The Am eri can Farm Bu reau Fed erat io n an d th e Nati on al Po rk Pro du cers

Co un ci l ap pe al th e d is tri ct co ur t’s ru li ng th at th ey la ck Arti cl e III s ta nd in g t o b rin g

a “rever se ” Free do m of In fo rm at io n Act (“ FOIA”) su it

, se e 5 U.S.C. §§ 5 5 2

, 70 6( 2) (A), ch al le ng in g th e Env iro nm en ta l Pro te ct io n Age nc y ’s di sc lo su re of cert ai n

in fo rm at io n ab ou t co nc en tra te d an im al feed in g op erat io ns

. The as so ci at io ns co nt en d

th at th is di sc lo su re is an un la wfu l rel eas e of t h e i r m em be rs ’ pe rs on al in fo rm at io n.

Ass um in g, fo r pu rp os es of st an di ng an al y si s, th at th ei r cl ai m wou ld be su cces sf ul on

th e m eri ts , t he as so ci at io ns ha ve es ta bl is he d a co nc ret e an d pa r t i c u l a riz ed in jury in

fact tra ceab le to th e EPA’ s act io n an d red res sa bl e by jud ic ia l rel ie f. W e th eref or e

co nc lu de th e di st ric t co ur t erre d in di sm is si ng th is cas e fo r la ck o f s t a n d i n g

. W e

fu rth er de te rm in e th at th e EPA ab us ed it s di sc ret io n in de ci di ng th at th e in fo rm at io n

at is su e was no t ex em

pt fro m m an da to ry di sc lo su re un de r Exe m pt io n 6 of FOIA. Id

. § 55 2( b) (6 ). Acco rd in gl y , we rev ers e an d rem an d fo r th e di st ric t co ur t to co ns id er th e

as so ci at io ns ’ req ue st for in jun ct iv e rel ie f.

I.

The Cl ean W at er Act pr oh ib it s th e di sc ha rg e of po ll ut an ts in to w a t e r s of th e

Uni te d St at es , ex cep t as au th or iz ed un de r th e Act. 33 U.S.C. §§ 13 11 (a), 13 42

, 13 62 (7 ), (1 2)

, (1 6)

. The Act reg ul at es nu m ero us so ur ces of po te nt ia l wate r po ll ut io n,

in cl ud in g co nc en tra te d an im al feed in g op erat io ns (“ CAFOs ”). Id

. § 1 3 6 2 ( 1 4 ). A

CAFO is an y area whe re a cert ai n nu m be r of an im al s are “ st ab le d or co nf in ed an d fed

or m ai nt a i n e d fo r a to ta l of 45 da y s or m or e in an y 12 -m on th pe rio d” an d whe re

“ [c]rop s, ve ge ta ti on , fo rag e gr owt h, or po st -h arv es t res id ue s are no t su st ai ne d in th e

no rm al gro win g s eas on .” 40 C.F.R. § 12 2.2 3( b) (1 ), (2 ), (4 ), (6 ). A CAFO m ay no t

-2

-di sc ha rg e po ll ut an ts in to th e wate rs of th e Uni te d St at es un le ss it ob ta in s a Nati on al

Po ll ut an t Dis ch arg e Eli m in at io n Sy st em pe rm it fro m th e EPA or an au th or iz ed st at e

ag en cy

. Se e 33 U.S.C. §§ 13 11 (a), (e ), 13 42 , 13 62 (1 4) ; 4 0 C .F.R. § 1 22 .23 (d ), (f).

A pe rs on se ek in g a syste m pe rm it fo r a CAFO fro m ei th er th e EP A o r a n

au th or iz e d s t a t e ag en cy go es th ro ug h th e sa m e ap pl ic at io n pr oc es s. 40 C.F.R.

§§ 12 2.2 1( i), 12 3.2 5( a)(4 ). An ap pl ic an t su bm it s an arra y of in fo rm at io n, in cl ud in g

th e na m e of th e own er or op erat or of th e faci li ty, th e faci li ty lo cat io n an d m ai li ng

ad dr es s, a to po gr ap hi c m ap of th e ge og r a p hi c area whe re th e feed in g op erat io n is

lo cat ed

, an d th e es ti m at ed am ou nt s of m an ur e, li tt er, an d pr oc es s was te wate r

ge ne rat ed pe r y ear. Id

. § 12 2.2 1( i); se e id

. § 12 2.2 3( d)

. The Act req ui res th at pe rm it

ap pl ic at io ns an d is su ed pe rm it s m us t be a v a il ab le to th e pu bl ic

. 33 U.S.C.

§ 1 34 2( b) (3 ), (j).

In 20 08

, th e Gov ern m en t Acco un ta bi li ty Offi ce is su ed a rep or t st at in g th at th e

EPA’ s in fo rm at io n ab ou t CAFOs th at rece iv ed syste m pe rm it s fro m au th or iz ed st at e

ag en ci es was in co ns is te nt an d in accu rat e. Thi s rep or t reco m m en de d th at th e ag en cy

co m pi le a na ti on a l in ve nt or y of CAFOs wit h syste m pe rm it s. U.S. Gov ’t

Acco un ta bi li ty Offi ce, G A O-0 8- 94 4, Co nc en tr at ed Ani mal Feed in g Ope ra ti on s:

EP A N e e ds Mor e In

fo rma ti on an d a Cl ea rl

y Defi ne d St ra te

gy to Pro te ct Air an d

W at er Qua li ty fr om Poll ut an ts of Co nc er n , at 48 (2 00 8)

. At th at ti m e, a CAFO was

req ui red to ob ta in a syste m pe rm it on ly if th e op erat io n act ua lly dis ch arg ed po ll ut an ts

. The EPA ex pa nd ed it s syste m -p erm it req ui rem en t t o i n c lu de an y CAFO th at was

de si gn ed , c on st ru ct ed , o pe rat e d

, an d m ai nt ai ne d in a m an ne r th at th e CAFO wou ld

di sc ha rg e, bu t th e Fi fth Ci rcu it va cat ed th e rev is ed reg ul at io ns as e x c e e d i n g th e

a g e n c y’ s st at ut or y au th or it y

. Na t’l Por k Pro du cer s Co un ci l v. EPA , 6 35 F.3 d 7 3 8

, 74 6, 7 56 (5t h C ir. 2 01 1)

.

In ad di ti on to is su in g th es e rev is ed reg ul at io ns , th e EPA ag reed —as pa rt of a

se tt le m en t ag reem en t wit h en vi ro nm en ta l or ga ni zat io ns —t o pr op os e a se pa rat e ru le

-3

-req ui rin g al l CAFOs to su bm it in fo rm at io n to th e EPA, whe th er or no t th e op erat io ns

ha d a syste m pe rm i t

. The pr op os ed ru le req ui red cert ai n in fo rm at io n fro m al l

CAFOs : th e co nt act in fo rm at io n of th e CAFO own er, th e lo cat io n of th e op erat io n’s

pr od uc ti on area , an d whe th er th e op erat io n ha d ap pl ie d fo r a syste m pe rm it

. Nati on al

P ol lu ta nt Dis ch arg e Eli m in at io n Sy st em (NPDES) Co nc en tra te d Ani m al Fee d i n g Ope rat io n (CAFO) Rep or ti ng Ru le

, 76 Fed

. Reg

. 65 ,43 1, 65 ,43 7 (p ro po se d Oct. 21

, 20 11 ). Co m

m en ts fro m in du st ry ob se rv ers an d St at es , ho wev er, su gg es te d th at m uc h

of th e in fo rm at io n to be co ll ect ed un de r th e pr op os ed ru le was al read y av ai la bl e fro m

so ur ces ot he r t h a n t h e own ers

. The EPA co ns eq ue nt ly wit hd rew it s pr op os ed

rep or ti ng ru le an d de ci de d to co ll ect th e rel ev an t in fo rm at io n fro m fed eral

, st at e, an d

lo cal go ve rn m en t so ur ces

. Nati on al Po ll ut an t Dis ch arg e Eli mi n a t i on Sy st em (NPDES) Co nc en tra te d Ani m al Feed in g Ope rat io n (CAFO) Rep or ti ng Ru le

, 77 Fed

. Reg . 42 ,67 9, 4 2,6 81 (Ju ly 20, 2 01 2)

.

Alt ho ug h th e GAO ha d cri ti ci zed th e EPA’ s in te rn al da ta syste m s as

in co m pl et e, th e ag en cy di d ret rie ve wha t in fo rm at io n was av ai la bl e ab ou t syste m

p e r mits fo r CAFOs be fo re is su in g th e pr op os ed rep or ti ng ru le

. Mu ch of t h e

in fo rm at io n fro m th e ag en cy ’s in te rn al da ta syste m s is av ai la bl e to th e pu bl ic in a

di ffer en t fo rm at on a pu bl ic web si te

. Enf or cemen t an d Co mpl ia nc e His to ry Onl in e , Env ’tl Pro te ct io n Age nc y , ht tp s: // ech o.e pa .go v/ ( l a s t v is it ed Aug

. 25

, 20 16 ). The

web si te ’s pu bl ic ly av ai la bl e in fo rm at io n i nc lu de s “ faci li ty nam es , lo cat io ns , per m it

in fo rm at io n, in sp ect io ns , v io la ti on s, en fo rcem en t ac ti on s (c om pl et ed act io ns on ly),

an d p en al ti es .”

Afte r wit hd rawi ng th e pr op os ed rep or ti ng ru le

, th e EPA ob ta in ed in fo rm at io n

ab ou t CAFOs fo r it s na ti on al in ve nt or y fro m se ve ral so ur ces

. The ag en cy ha s

co ll ect ed in fo rm at io n fro m th irt y -fi ve St at es : twen ty-sev en St at es pr ov id ed pu bl ic ly

acce ss ib le in fo rm at io n a t t h e EPA’ s req ue st

, two St at es refe rred th e ag en cy to th e

fed eral da ta s ys te m s fo r th ei r CAFO in fo rm at io n, an d th e ag en cy ret rie ve d CAFO

in fo rm at io n fro m ei gh t St at es ’ web si te s (in c lu di ng two St at es th at pr ov id ed

-4

-in fo rm at io n at th e EPA’ s req ue st ). The EPA al s o g a t h e r ed in fo rm at io n ab ou t si x

St at e s fro m it s reg io na l of fic es

. W hi le m os t of th e in fo rm at io n rece iv ed fro m th e

St at es rel at ed t o CAFOs

, so m e St at es al so ga ve th e EPA in fo rm at io n ab ou t ot he r

faci li ti es

.

W hi le th e ag en cy was in th e pr oc es s of co ll ect in g t h i s i n fo rm at io n, th ree

or ga ni zat io ns —Ea r t hju st ic e, th e Pew Ch ari ta bl e Trus ts

, an d th e Natu ral Res ou rces

Defen se Co un ci l— su bm it te d FOIA req ue st s fo r th e EPA’ s reco rd s wit h in fo rm at io n

ab ou t CAFOs

. So m e of th e r e q u e s t e d i nf or m at io n in cl ud ed th e le ga l na m e of th e

own er of th e CAFO an d th e own er’s m ai li ng a d d r e s s , e-m ai l ad dr es s, an d pr im ary

te le ph on e nu m

be r. In res po ns e, th e EPA rel eas ed to th e r e q u e st ers in fo rm at io n

ga th ered fro m twen ty-eig ht St at es an d fro m th e EPA’ s da ta syste m s. The EPA di d

no t rel eas e in fo rm at io n ob ta in ed fro m th e rem ai ni ng se ve n St at es , be cau se th e ag en cy

ga th ered th os e da ta aft er th e FOIA req ue st s. Afte r th e ag en cy no ti fie d ag ric ul tu ral

st ak eh ol de rs , i nc lu di ng th e Far m Bu reau an d t he Pro du cers Co un ci l, of th e rel eas e,

th e s t ak eh ol de rs rai se d co nc ern s. The EPA ag reed to in ve st ig at e whe th er it ha d

di sc lo se d in fo rm at io n th at was no t read il y av ai la bl e to th e pu bl ic an d th at c o u ld

tri gg er p riv acy con cern s u nd er FOIA.

In a le tt er da te d Apr il 4, 20 13

, th e EPA in fo rm ed th e ag ric ul tu ral st ak eh ol de rs

of th e ag en cy ’s vi ew th at in fo rm at io n co nc ern in g CAFOs fro m ni ne te en S t a t e s di d

no t i m pl ic at e p riv acy int eres ts th at m ad e th e reco rd s el ig ib le for wit hh ol di ng un de r

Exe m pt io n 6 of FOIA. 5 U.S.C. § 55 2( b) (6 ). Exe m pt io n 6 ex cl ud es fro m m an da to ry

di sc lo su re “ pe rs on ne l an d m ed ic al fil es an d si m il ar fil es t h e di sc lo su re of whi ch

wou ld co ns ti tu te a cl earl y un warra nt ed in va si on of pe rs on al pr iv acy.” Id

. The EPA

de te rm in ed th at Exe m

pt io n 6 di d no t ap pl y be cau se th e in fo rm at io n fro m th e ni ne te en

St at es was acce ss ib le on a pu bl ic web si te or av ai la bl e to th e pu bl ic on req ue st

, a n d

th at th e rel ea s e o f th at in fo rm at io n th us di d no t im pl ic at e a su bs ta nt ia l pr iv acy

in te res t. Eve n as su m in g a pr iv acy in te res t, th e ag en cy de te rm in ed th at th e weig ht of

th e p ub li c in te res t re nd ered an y in va si on of p riv acy not “ cl earl y un warra nt ed .”

-5

-On th e sa m e da y as th e Apr il 4 le tt er, th e EPA pr ov id ed an am en de d res po ns e

to th e FOIA req ue s t e r s aft er co m pl et in g it s rev ie w. The ag en cy di sc lo se d al l

in fo rm at io n reg ard in g CAFOs in ni ne te en St at es

. The ag en cy di d no t di sc lo se so m e

o f t he in fo rm at io n ob ta in ed fro m se ve ral ot he r St at es , ho wev er, be cau se th a t

in fo rm at io n pe rta in ed to faci li ti es wit ho ut syste m pe rm it s or faci li ti es no t su bjec t to

fed er a l or st at e m an da to ry pe rm it ti ng di sc lo su re req ui rem en ts

. The EPA reas on ed

th at th e la tt er su bs et of i nf or m at io n— whi ch co nt ai ne d in di vi du al na m es , ph on e

nu m be rs , m ai li ng ad dr es se s, an d e-m ai l ad dr es se s— im pl ic at ed a su bs ta nt ia l pr iv acy

in te res t th at ou twei gh ed th e pu bl ic in te res t in di sc lo su re. At th e cl os e of th e res po ns e,

th e EPA as ke d th e FOIA req ue st ers to ret ur n th e ag en cy ’s in it ia l res po ns e, an d al l of

th e req ue st ers acce de d t o t he req ue st

.

The EPA cu rren tl y ha s inf or m at ion re ga

rd ing CA FO s in se ve n ad di ti on al St at es

th at was ob ta in ed aft er th e in it ia l FOIA req ue st s at is su e he re. The ag en cy ha s no t y et

rel eas ed th at in fo rm at io n to th e FOIA req ue st ers

. Si nc e it s am en de d res po ns e to th e

or ig i n a l F O I A req ue st s, th e ag en cy ha s rece iv ed se ve n m or e in fo rm at io n req ue st s

se ek in g th e sa m e or si m il ar in fo rm at io n as th e or ig in al req ue st s; so m e req ue st s als o

se ek th e in fo rm at io n fro m th e se ve n St at es th at ha d no t be en rel eas ed pr ev io us ly. The

ag en cy de ferr ed th os e req ue st s p en di ng res ol ut io n o f th is li ti ga ti on

.

The Farm Bu reau an d th e Pro du cers Co un c i l b ro ug ht th is “ rev ers e” FOIA

act io n un de r th e Adm in is tra ti ve Pro ced ur e Act (“ APA”), 5 U.S.C. § 70 6( 2) (A). The y

so ug ht an or de r pr ev en ti ng th e EPA fro m m ak in g ad di ti on al di sc lo su res of pe rs on al

in fo rm at io n th a t i t c o l l ect s fro m th e St at es an d req ui rin g th e ag en cy to reca ll th e

pe rs on al in fo rm at io n th at it rel eas ed

. The Farm Bu reau an d th e Pro d u c e r s Co un ci l

arg ue d th at 5 U.S.C. § 55 2( b) (6 ), kn own a s Ex e mp t i o n 6 of FOIA, pr ot ect ed th e

in fo rm at io n fro m m an da to ry di sc lo su re, an d th at th e ag en cy ab us ed it s di sc ret io n an d

a c t e d arb it rari ly an d cap ric io us ly or co nt rary to la w by no t wit hh ol di ng th e

in fo rm at io n. Sev eral en vi r on m en ta l or ga ni zat io ns —Fo od & W at er W at ch

,

-6

-E n v i r o n me n t a l I n t e g r i t y P r o j e c t

, a n d I o w a C i t i z e n s f o r C o mmu n i t y

Im pr ov em en t— in te rv en ed in su pp or t o f di sc lo su re o f th e in fo rm at io n.

Th e p a rti es fil ed cro ss -m ot io ns fo r su m m ary jud gm en t. The di st ric t co u r t

gr an te d su m

m ary jud gm en t fo r th e EPA an d th e In te rv en or s, co nc lu di ng th at th e Farm

Bu reau an d th e Pro du cers Co un ci l la ck ed st an di ng u n d e r Arti cl e III of th e

Co ns ti tu ti on . The Fa rm

Bu reau an d t he Pro du cers Co un ci l ap pe al

.

II.

Arti cl e III of th e Co ns ti tu ti on li m it s th e juri sd ic ti on of fed eral co ur ts to “ Cases ”

an d “ Co nt ro ve rs ie s.” U.S. Co ns t

. a rt. III, § 2. “ [S]tan di ng is an es se nt ia l an d

un ch an gi ng pa rt of th e cas e-o r-co nt ro ve rs y r e q u i r em en t of Arti cl e III.” Lu ja n v. Defe nd er s of W il dl if e , 50 4 U.S. 55 5, 56 0 (1 99 2)

. A pl ai nt iff es ta bl is he s st an di ng by

sh owi ng th at he ha s su ffer ed an in jury in fact th at is fai rly tra ceab le to th e ch al le ng ed

co nd uc t of th e de fen da nt an d th at wil l li ke ly be red res se d by a fav or ab le de ci si on

. Id

.
at 56 0- 61

. “ The st an di ng in qu iry is no t, ho wev er, an as se ss m e n t o f t he m eri ts of a pl ai nt iff ’s cl ai m .” Red Rive r Free th in ker s v. Ci ty of

Far go , 67 9 F.3 d 10 15

, 10 23 (8 th

Ci r. 20 12 ); se e Bra de n v . W al -Ma rt St or es

, In c. , 58 8 F.3d 58 5, 59 1 (8t h Cir. 20 09 ).

In as se ss in g a pl ai nt iff ’s Arti cl e III st an di ng , we m us t “ as su m e th at on th e m eri ts th e pl ai nt iff s wou ld be su cces sf

ul in th ei r cl ai m s.” Mui r v. Na vy Fed

. Cr ed it Uni on , 52 9

F.3 d 1 10 0, 1 10 6 (D.C . Cir . 20 08 ).

Ass oc ia ti on s li ke th e Farm Bu reau an d th e Pro du cers Co un ci l h a v e st an di ng

to br in g su it on be ha lf of th ei r m em be rs , pr ov id ed th at th e “ m em be rs wou ld ot he rwis e

ha ve st an d i n g t o su e in th ei r own rig ht

, th e in te res ts at st ak e are ge rm an e to th e

or ga ni zat io n’s pu rp os e, an d ne it he r the cl ai m as se rt ed nor the rel ie f req ue st ed req ui res

th e pa rti ci pa ti on of in di vi du al m em be rs in th e la wsu it .” Fri en ds of th e Ear th

, In c. v.

La id la w Env tl . Ser vs . (TOC), In c. , 52 8 U.S. 1 67 , 1 81 (2 00 0)

. The EPA adm it s t ha t

-7

-th e la tt er two el em en ts are sa ti sf ie d; th e on ly di sp ut e is whe th er an y m em be rs of th e

or ga ni zat io ns wou ld ha ve st an di ng to su e in th ei r own rig ht

.

The di st ric t co ur t acce pt ed th e EPA’ s arg um en t th at th e Farm Bu reau an d th e

Pro du cers Co un ci l la ck st an di ng be cau se th e pe rs on al in fo rm at io n of th ei r m em be rs

is al read y pu bl ic ly av ai la bl e. The Farm Bu reau an d th e Pro du cers Co un ci l arg ue th at

th e co ur t’s an al y si s co nf

la te s th e req ui rem en ts of st an di ng wit h th e mer i ts of th ei r

cl ai m s u nd er t he APA.

In jury in fact m ean s a n a c t u a l or im m in en t in va si on of a co nc ret e an d

pa rti cu la riz ed

, le ga ll y pr ot ect ed in te res t. Lu ja n , 50 4 U.S. at 56 0. A pa rty’ s in jury in

fact is di st in ct fro m it s po te nt ia l cau se s of a c t i o n

. Ca rl se n v. GameS to

p, In c. , No.

15 -2 45 3, 20 16 W L 43 63 16 2, at *3 (8 th Ci r. Aug

. 16

, 20 16 ); Bra de n , 58 8 F.3 d at 59 1,

59 3. A c c o rd in gl y , a pl ai nt iff ne ed no t pr ov e an un la wfu l act io n to ha ve st an di ng , be cau se “ whe th er a st at ut e ha s be en vi ol at ed ‘is a qu es ti on th at go es to th e mer it s

. . .

an d no t to co ns ti tu ti on al st an di ng .’ ” Mui r , 52 9 F.3 d at 11 05 -0 6 (q uo ti ng La

. Ene rg y

& Pow er Aut h. v. FERC

, 14 1 F.3 d 3 6 4

, 3 6 7 ( D.C. Ci r. 19 98 )); se e Red Rive r

Free th in ker

s , 67 9 F .3d at 1 02 3.

The EPA reas on s th at be cau se th e di sp ut ed in fo rm at io n was pu bl ic ly av ai la bl e

on th e In te rn et or av ai la bl e fo r pu bl ic rev ie w, fu rth er di st rib ut io n of th e in fo rm at io n

co ul d no t es ta bl is h an y in jury. Tha t co nc lu si on , ho wev er, as se ss es th e m eri ts of th e

as se rte d pr iv acy in te res t un de r FOIA rat he r th an whe th er th e as so ci at io ns ’ m em be rs

ha d a le ga ll y co gn iz ab le in te res t in pr ev en ti ng th e ag en cy ’s rel eas e of th ei r pe rs on al

in fo rm at io n. It was un di sp ut ed on th e m ot io ns fo r su m m ary jud gm en t th at th e ag en cy

ha s re le as ed or wil l rel eas e pe rs on al in fo rm at io n of as so ci at io n m em be rs wit ho ut the ir

co ns en t as pa rt of it s res po ns e to th e FOIA req ue st s. Tha t is su ffi ci en t to es ta bl is h a

co n c r e t e an d pa rti cu la riz ed in jury in fact : th e no nc on se ns ua l di ss em in at io n of

pe rs on al in fo rm at io n. W he th er t h e rel eas e of th is in fo rm at io n “ wou ld co ns ti tu te a

-8

-cl earl y un warra nt ed in va si on of pe rs on al pr iv acy,” 5 U.S.C. § 55 2( b) (6 ), is a se pa rat e

in qu iry int o t he m eri ts of t he cla im

.

The EPA al so co nt en ds th at th e pl ai nt iff s c a n n o t sh ow cau sa ti on or

red res sa bi li ty. The ag en cy as se rts th at th e di sp ut ed in fo rm at io n is al read y pu bl ic ly

av ai la bl e th ro ug h th e St at es , an d th e co ur t can no t pr ev en t fu rth er di st rib ut io n an d us e

of th at in fo rm at io n b y

th ird pa rti es . This arg um en t, ho wev er, res ts on th e ag en cy ’s

fla wed un de rs ta nd in g of t he pl ai nt iff s’ all eg ed in

jury in fa ct . The ass ert ed in jury is

th e n on co ns en su al di sc lo su re o f pe rs on al in fo rm at io n b y th e EPA. That in

jury w as

cau se d b y EPA’ s d is cl os ur es an d th reat en ed di sc lo su res , a nd it can be red res se d b y

an or de r req ui rin g EPA to refr ai n f ro m fu tu re di sc lo su res an d to reca ll in fo rm at io n

pr ev io us ly dis cl os ed

.

The In te rv en or s arg ue th at th e cl ai m s of th e Farm Bu rea u an d th e Pro du cers

Co un ci l are m oo t be cau se th e EPA ha s al read y pr od uc ed th e in fo rm at io n req ue st ed

,

an d th e in fo rm at io n wil l rem ai n in th e pu bl ic do m ai n. The cas e is st il l li ve , ho wev er,

be cau se EPA ha s pr op os ed to di sc lo se m or e in fo rm at io n fro m se ve n St at es , in cl ud in g

Mi nn es ot a, an d be cau se EPA ha s th e cap aci ty to req ue st th e ret ur n of in fo rm at io n th at

it alr ead y di sc lo se d.

The In te rv en or s fu rth er co nt en d th at a di sp ut e ov er th e un rel eas ed in fo rm at io n

fro m se ve n St at es is no t rip e fo r rev ie w be cau se t h e EPA ha s no t m ad e a fin al

d e ci si on ab ou t whe th er to di sc lo se it

. Se e 5 U.S.C. § 70 4. The ag en c y’s d e c i s i o n

le tt er o f Apr il 4, h owe ve r, is a “ fin al ag en cy act io n” un de r § 7 04 , bec au se th e le tt er

m ark s “ th e co ns um m at io n of th e ag en cy ’s de c i s i o nm ak in g pr oc es s

. . . fro m whi ch

le ga l co ns eq ue nc es wil l flo w.” Ben ne tt v

. S p e a r , 5 20 U.S. 15 4, 17 7- 78 (1 99 7)

(in te rn al qu ot at io ns om it te d)

. Bas ed on it s an al y si s in th e A p ril le tt er, th e ag en cy

co m m it te d t o re le as e d at a th at it ha d gat he red ab ou t CAF Os. The ag en cy ag reed to

de la y rel eas in g in fo rm at io n ga th ered fro m cert ai n St at es on ly un ti l th e co nc lu si on of

th is li ti ga ti on

. The ag en cy ’s de ci si on le tt er is th eref or e is a fin al

, rev ie wab le act io n

-9

-un de r th e APA. Fo r es se nt ia ll y th e sa m e reas on s, th e de ci si on is rip e fo r rev ie w. Se e

Haw kes Co . v. U.S. Army C or ps of Eng ’r s , 78 2 F .3d 99 4, 1 00 2 n .2 (8 th Cir . 20 15 ).

In su m , m em

be rs of th e F a r m Bu reau an d Pro du cers Co un ci l al le ge th at th e

EPA’ s di sc lo su re of th ei r pe rs on al in fo rm at io n was b a s ed on a m is ap pl ic at io n of a

FOIA ex emp t i o n de si gn ed to pr ot ect pe rs on al pr iv acy. Tha t al le ga ti on an d th e

un di sp ut ed ev id en ce o f no nc on se ns ua l d is cl os ur es or im pe nd in g di sc lo su res by the

EPA su ffi ce to es ta bl is h an in jury in fact th at was cau se d b y th e ag en cy an d is

red res sa bl e b y th e co ur t. The as so ci at io ns th eref or e ha ve st an di ng to ch al le ng e th e

ag en cy ’s act io n.

III.

Alt ho ug h th e di st ric t co ur t ru le d th at th e pl ai nt iff s la ck ed st an di ng to su e, th e

co ur t’s de ci si on in su bs ta nc e ad dr es se d th e m eri ts of whe th er th e EPA’ s di sc lo su re

co ns ti tu te d a cl earl y un warra nt ed in va si on of pe rs on al pr iv acy su bjec t to Exe m pt io n

6 of FOIA. As th e di st ric t co ur t’s de ci si on on th at qu es ti on is fo reo rd ai ne d, th ere is

no po in t in rem an di ng fo r th e co ur t to ad dr es s th e m eri ts of th e ag e n c y’s a c t i o n on

Exe m pt io n 6. The pa rti es ha ve fu ll y br ie fed th e is su e, an d nei th er part y id en ti fie s a

qu es ti on of fact th at must be res ol ve d by th e di st ric t co ur t. W e th us pr oc eed to

c o n s id er whe th er th e EPA’ s de ci si on co nc ern in g Exe m pt io n 6 was an ab u s e o f

di sc ret io n, ar bi tra ry

an d c ap ric io us , or c on tra ry to law.

As a g en eral m at te r, FOIA req ui res th at th e go ve rn m en t pr ov id e in fo rm at io n

req ue st ed un de r FOIA to a req ue st er. 5 U.S.C. § 55 2( a); se e In re Dep’ t o f Ju st ic e , 99 9 F.2 d 13 02

, 13 05 (8 th Ci r. 19 93 ) (en ba nc ). The Act

, h o w e v e r , i nc lu de s ni ne

cat eg or ie s of in fo rm at io n th at are ex em pt fro m m an da to ry di sc l o s u r e

. 5 U.S.C.

§ 55 2( b)

. If req ue st ed in fo rm at io n is ex em pt fro m m an da to ry di sc lo su re, th e ag en cy

no rm al ly m ay st il l el ect to di sc lo se th e in fo rm at io n, “ un le ss so m et hi ng in de pe nd en t

-1 0-of FOIA pr oh ib it s di sc lo su re.” Ca mpa ig n fo r Fami ly Far ms v. Gli ckma n , 20 0 F.3d

11 80 , 11 85 (8t h C ir. 2 00 0)

.

Exe m pt io n 6 of FOIA st at es th a t a n a g e nc y is no t req ui red to di sc lo se

“ pe rs on ne l an d m ed ic al fil es an d si m il ar fil es ” if su ch di sc lo su re “ wou ld co ns ti tu te

a cl earl y un warra nt ed in va si on of pe rs on al pr iv acy.” 5 U.S.C. § 55 2( b) (6 ). An

ag en cy ’s rev ie w un de r Exe m pt io n 6 in vo lv es th r e e s t e p s

. Fi rs t, th e ag en cy m us t

de te rm in e whe th er th e req ue st se ek s pe rs on ne l, m ed ic al

, or si m il ar fil es

. The pa rti es

do no t d is pu te th at th e in fo rm at io n h ere i nv ol ve s “ si m il ar fi le s.”

The ag en cy m

us t th en de te rm i n e w he th er di sc lo su re wou ld co m pr om is e a

“ su bs ta nt ia l” pr iv acy in te res t. Se e Mul ti Ag Med ia LLC v. Dep ’t of Agr ic

. , 51 5 F.3 d

12 24 , 12 28 -2 9 (D.C. Ci r. 20 08 ); ac co rd Co ok v. Na t’l Arch iv es & Reco rd

s Ad min

. , 75 8 F.3 d 16 8, 17 5- 76 (2 d Ci r. 20 14 ). If th e ag en cy de te rm in es th at th ere is a

su bs ta nt ia l pr i va cy in te res t in th e in fo rm at io n, th e ag en cy m us t th en “ ba la nc e th e

pr iv acy in te res t of th e in di vi du al a g a i n s t th e pu bl ic in te res t in di sc lo su re” to

de te rm in e whe th er th e ex em pt io n ap pl ie s. Ca mpa ig n fo r Fami ly Far ms , 20 0 F.3 d at

11 85 ; se e Mu lt i Ag Med ia , 51 5 F .3d at 1 22 9- 31

.

As a di sc lo su re s t a t ut e, FOIA pr ov id es on ly a cau se of act io n to co m pe l

di sc lo su re; it do es no t pr ov id e a m ean s of pr ev en ti ng di sc lo su re. Se e 5 U.S.C.

§ 55 2( a)(4 )(B) ; Ch ry sl er Co rp

. v. Bro wn , 44 1 U.S. 28 1, 29 0- 94 (1 9 7 9 )

. A pa rty

ag g r i e v e d by an act ua l or im pe nd in g di sc lo su re, ho wev er, m ay br in g a “ rev ers e”

FOIA act io n un de r th e APA an d ob ta in rel ie f if th e ag en cy ’s de ci si on to di sc lo se th e

in f o r mat i on is “ arb it rary, cap ric io us , an ab us e of di sc ret io n, or ot he rwis e no t in

acco rd an ce wi th law.” 5 U.S.C. § 7 06 (2 )(a) ; se e Ca mpa ig n fo r Fami ly Far ms , 20 0

F.3 d a t 1 1 8 4

. A rev ie win g co ur t can no t su bs ti tu te it s jud gm en t fo r a pe rm is si bl e jud gm en t of th e di sc lo si ng ag en cy , bu t th e ag en cy m us t ex am in e th e rel ev an t fact or s

an d art ic ul at e a sa ti sf

act or y ex pl an at io n fo r it s act io n. Se e Mot or Veh ic le Mfr s. Ass ’n
of U.S., In c. v. St at e Far m Mut . Aut o. In s. Co

. , 46 3 U.S. 2 9, 4 3 (1 98 3)

.

-1 1-The as so ci at io ns di sp ut e th e ag en cy ’s co nc lu si on th at di sc lo su re of th e

in fo rm at io n wo ul d n ot co m pr om is e a “ su bs ta nt ia l” pri va cy in te res t. Se e Co ok , 75 8

F.3 d at 17 5- 76 ; ac co rd Mul ti Ag Med ia

, 51 5 F.3 d at 1 22 9. In th is an al y si s, “ [a]

su bs ta nt ia l pr iv acy in te res t is an y th i ng gr eat er th an a de min imi s pr iv acy in te res t.”

Mul ti Ag Med ia

, 51 5 F.3 d at 12 29 -3 0. W hi le Exe m pt io n 6 sp eak s on ly of “ pe rs on al

pr iv acy,” we ha ve ne ve r em pl oyed an “ ov erl y te ch n ic al di st in ct io n be twee n

in di vi du al s act in g in a pu rel y pr iv at e cap aci ty an d th os e act in g in an en tre pr en eu ria l

cap aci ty.” Ca mpa ig n fo r Fami ly Far ms , 20 0 F.3 d at 11 89 ; se e Mul ti Ag Med ia

, 51 5

F.3 d at 12 28

. Rat he r, we co ns tru e Exe m pt io n 6 br oa dl y “ as a ge ne ral ex em pt io n th at

ex cl ud es ‘tho se ki nd s of fi l e s t h e d i sc lo su re of whi ch m ig ht ha rm th e in di vi du al .’ ”

Ca mpa ig n fo r Fami ly Far ms , 20 0 F.3 d at 11 88 -8 9 (q uo ti ng U

. S. Dep t. of St at e v.

W as h. Pos t Co

. , 45 6 U.S

. 5 9 5

, 5 9 9 (1 98 2) ). A CAFO own er th us m ay ha ve a

su bs ta nt ia l i nd iv id ua l p riv acy int eres t i n t he di sc lo su re of the op erat io ns ’ reco rd s i f

th e d is cl os ur e o f th os e fi le s wo ul d h arm th e o wne r pe rs on al ly. Id

.

The in fo rm at io n req ue st ed he re in cl ud es p e r s on al in fo rm at io n ab ou t CAFO

own ers , i nc lu di ng na m es , h om e ad dr es se s, te le ph on e nu m be rs , GP S co or d i n a te s of

ho m es , an d in fo rm at io n fro m whi ch fin an ci al in fo rm at io n co ul d be gl ean ed

. Decl aran t Dav i d R yd b erg , f or ex am pl e, av ers th at hi s ho m e ad dr es s is th e sa m e as

th e ad dr es s of hi s faci li ty, th at h i s f a mi l y li ve s at th at ad dr es s, an d th at th e gl ob al

po si ti on in g co or di na te s th at he pr ov id ed to th e St at e of Io wa m at ch th e lo cat io n of hi s

ho m e. The EPA, h owe ve r, ha s rele as ed th at in fo rm at io n ov er Ry db erg ’s ob jecti on

. The Farm Bu reau an d th e Pro du cers Co un ci l pr ov id e si m il ar affi da vi ts fro m se ve ral

Mi nn es ot a farm ers op po se d to th e im pe nd in g rel eas e of th ei r pe rs on al in fo rm at io n by

th e ag en cy

.

The di sc lo su re of na m es , ad dr es se s, te le ph on e nu m be rs , GPS co or di na te s, an d

fin an ci al st at us es can im

pl ic at e su bs ta nt ia l pr iv acy in te res ts

. Se e U.S. Dep ’t of Def.

v. FLRA

, 51 0 U.S. 48 7, 50 0 (1 99 4) ; Ca mpa ig n fo r Fami ly Far ms , 20 0 F.3 d at 11 88

-
89 ; Mul ti Ag Med ia

, 51 5 F.3 d a t 1 2 3 0

. In th is co nt ex t, th e di sc lo su re of su ch

-1 2-in fo rm at io n wou ld co ns ti tu te a s u b s ta nt ia l in va si on of pr iv acy, be cau se it wou ld

faci li ta te un wan te d c on ta ct wit h CAFO own ers by FOIA req ue st ers an d th ei r

as so ci at es , a nd ev en po te nt ia l h a r a s sm en t of CAFO own ers an d th ei r fam il ie s. Se e

U.S. Dep ’t of St at e v. Ray

, 50 2 U.S. 16 4, 1 7 6 n

. 1 2 (1 99 1) ; For es t Se rv

. Emps

. fo r

Env tl

. Eth ic s v. U.S. For es t Se rv

. , 52 4 F.3 d 10 21

, 10 26 (9 th Ci r. 20 0 8 ) ( “ The

av oi da nc e of ha ras sm en t is a co gn iz ab le pr iv acy in te res t un de r Exe m pt io n 6.” ). One

m em be r of Fo od & W at er W at ch

, fo r ex am pl e, ad m it s to ha v i n g “ pa rti ci pa te d in

aeri al an d gr o u nd in ve st ig at io ns of po ul try fa ci li ti es ” an d av ers th at “ to pr ot ect ou r

wate rway un de r th e Act, it is im po rta nt to kn ow th e n a me a n d pr op er co nt act

in fo rm at io n fo r t h e s e faci li ti es an d th ei r own ers an d op erat or s.” Decl aran t Ri ck

Gro m m ers ch of Mi nn es ot a pr ov id ed de ta il s of an in ci de nt du rin g whi ch m em be rs of

an en vi ro nm en ta l or ga ni zat io n en te red hi s pr op ert y an d to ld hi m th at th ey were go in g

to po st pi ct ur es of hi s pr op ert y on li ne

. Th e a g e n c y i t se lf ack no wled ge d in it s

pr op os ed re por

tin g ru le “ tha t pr ov id in g la ti tu de an d lo ng it ud e in fo rm at io n m ig ht rai se

se cu rit y or pr iv acy co nc ern s.” Nati on al Po ll ut an t Dis ch arg e Eli m in at io n Sy st em (NPDES) Co nc en tra te d Ani m al Feed in g Ope rat io n (CAFO) Rep or ti ng Ru le

, 76 Fed

. Reg . at 6 5,4 38

.

The EPA’ s de ci si on le tt er no ne th el es s co nc lu de d th at Exe m pt io n 6 di d n ot

ap pl y be cau se th e req ue st ed in fo rm at io n was “ well kn own or wid el y av ai la bl e wit hi n

th e p ub li c do m ai n.” The ag en cy em ph as iz es th at m

uc h o f th e d is pu te d i nf

or m at io n

is acce ss ib le on fed eral or st at e web si te s or ot he rwis e av ai la bl e in th e pu bl ic reco rd

.

The ag en cy ’s co nc lu si on on th is po in t was co nt rary to l aw. “ An in di vi du al ’s

in te res t in co nt ro l l i ng th e di ss em in at io n of in fo rm at io n reg ard in g pe rs on al m at te rs

do es no t di ss ol ve si m

pl y be cau se th at in fo rm at io n m ay be av ai la bl e to th e pu bl ic in

so m e fo rm .” FLRA

, 51 0 U.S. at 50 0. The EPA he re is m or e th an si m pl y a se co nd

so ur ce fo r id en ti cal

, pu bl ic ly av ai la bl e in fo rm at io n. The ag en cy ha s ag gr eg at ed va st

co ll ect io ns of da ta fro m th e m ajor it y of St at es —m uc h of it ob ta in ed th ro ug h st at esp eci fic in fo rm at io n re qu es ts —an d p ro vi de d i t t o re qu es te rs in a si ng le res po ns e.

-1 3-I n Uni te d St at es Dep ar tmen t of Ju st ic e v. Rep or te rs Co mmit te e fo r Fre e d o m

of th e Pres s , 48 9 U.S. 74 9, 75 7 (1 98 9)

, n e w s o r g a n i zat io ns so ug ht th e rel eas e of

cri m in al “ rap sh eet s” co m pi le d by th e Uni te d St at es Dep art m en t of Ju st ic e. The se rap

sh eet s co m

pi le d pu bl ic ly-ava il ab le in fo rmati on fro m lo cal

, st at e, an d fed eral la w

en fo rcem en t ag en ci e s in to a si ng le rep or t of su bjec ts ’ pe rs on al in fo rm at io n an d

cri m in al hi st or y

. Id

. at 75 2. The Su pr em e Co ur t up he ld th e J u s t i ce Dep art m en t’s

refu sa l to rel eas e th e rap sh eet s, an d reject ed th e req ue st ers ’ arg um en t th at th ere was

no ex em pt io n fro m FOIA di sc lo su re be cau se th e in fo rm at io n was pu bl ic ly av ai la bl e.

The Co ur t no te d th e “ va st di ffer en ce” be twee n pu bl ic reco rd s th at m ig ht be fo un d

aft er a di li ge nt se arch th ro ug h va rio us ad m in is tr a t iv e fil es an d “ a co m pu te riz ed

su m m ary lo cat ed in a si ng le cl eari ng ho us e of in fo rm at io n.” Id

. at 7 6 4

. Rep or te rs

Co mmit te e co ns id ered a pr iv acy in t e r e st un de r Exe m pt io n 7 of FOIA rat he r th an

Ex e mp ti on 6, bu t th e de ci si on pr ov id es im po rta nt gu id an ce in as se ss in g a pr iv acy

in te res t u nd er Ex em

pt io n 6 . See FLRA , 51 0 U.S. at 49 6 n .6.

Lik e th e req ue st ers in Rep or te rs Co mmit te e , th e req ue st ers he re se ek acce ss to

“ a si ng le cl eari ng ho us e of in fo rm at io n” co m pi le d by a go ve rn m en t ag en cy

. W hi le th e

ad ve n t of th e In te rn et ha s m ad e so m e of th e in fo rm at io n at is su e he re m or e eas il y

acce ss ib le th an th e in fo rm at io n in Rep or te rs Co mmit te e , CAFO own ers st il l ha ve a

pr iv acy in te res t in pr e v en ti ng th e m as s ag gr eg at io n an d rel eas e of th ei r pe rs on al

in fo rm at io n by th e go ve rn m en t. The ag en cy ’s own ex te ns iv e co ll ect io n e ffo rts an d

ad vo cacy gr ou ps ’ m

ul ti -y ea r e f

f o rt to ob ta in th e da ta sh ow th at th e EPA ha s

co nsol ida te d inf

or m at ion tha t w oul d oth erwise ex is t in co ns id erab ly gr eat er ob sc ur ity

. Se e Rep or te rs Co mm. , 48 9 U.S. at 78 0.

Tha t in fo rm at io n ab ou t a pa rti cu la r own er m ig ht be ob ta in ed th ro ug h pu bl ic lyav ai la bl e so ur ces li ke wis e do es no t pr ecl ud e a su bs ta nt ia l pr iv acy in te res t. The re is

an im po r t a nt di st in ct io n “ be twee n th e m ere ab il it y to acce ss in fo rm at io n an d th e

li ke li ho od of act ua l pu bl ic fo cu s on th at in fo rm at io n.” Am. Ci vi l Lib er ti es Uni on v.

U.S. Dep ’t of Ju st ic e , 75 0 F. 3 d 9 2 7

, 9 33 (D.C. Ci r. 20 14 ). Alt ho ug h a req ue st er

-1 4-m ig ht be ab le to fin d th e in fo rm at io n he se ek s on a web si te or in a St at e’s pu bl ic ly

av ai la bl e fil es , th e ag en cy ’s co m pr eh en si ve li st in g of CAFOs su bs ta nt ia ll y in crea se s

th e pu bl ic vi si bi li ty an d acce ss ib il it y of th at in fo rm at io n. The ag en cy ’s rel eas e of th e

co m pl et e se t of da ta on a si lv er pl at te r, so to sp eak

, el im in at es th e ne ed fo r req ue st ers

an d ot he rs to sc ou r di ffer en t web si te s an d to pu rs ue pu bl ic reco rd s req ue st s to crea te

a co m pr eh en si ve da ta ba se of th ei r own

. If th e in fo rm at io n were so eas il y acce ss ib le

, th en it is pa ss in g st ran ge th at th e p art ie s wo ul d en ga ge in pr ot ract ed an d ex pe ns iv e

li ti ga ti on to se cu re it th ro ug h th e Free do m of In fo rm at io n Act. Se e Rep or te rs Co mm. , 48 9 U.S. at 76 4. W e co nc lu de th at th e o r g a n i z a t io ns ’ m em be rs ha ve a su bs ta nt ia l

pr iv acy int eres t i n t he pe rs on al in fo rm at io n a t i ss ue

.

As to so m e of th e di sc lo su res , th e ag en cy co nc lu de d al te rn at iv el y th at ev en if

th ere wer e a s ub st an ti al pri va cy in te res t i n t he nu m

be r, si ze, an d lo cat io n of an im al

li ve st oc k op erat io ns , th at pr iv acy in te res t was ou twei gh ed by th e pu bl ic ’s in te res t in

di sc lo s u r e

. In as se ss in g th at co nc lu si on , “ th e on ly rel ev an t pu bl ic in te res t” is “ th e

ex te nt to whi ch di sc lo su re of th e in fo rm at io n so ug ht wou ld sh ed li gh t on an ag en cy ’s

pe rfo rm an ce of it s st at ut or y du ti es or ot h e r w i s e le t ci ti zen s kn ow wha t th ei r

go ve rn m en t is up to .” Bib le s v. Or. Na t. Des er t Ass ’n

, 51 9 U.S. 35 5, 35 5- 56 (1 99 7)

(p er cu ria m ) (q uo ta ti on s an d br ack et s om it te d)

. FOIA’s pu rp os e “ is no t fo st ered by

di sc lo su re of in fo rm at io n ab ou t pr iv at e ci ti zen s th at is a c cu m ul at ed in va rio us

go ve rn m en ta l fil es bu t th at rev eal s li tt le or no th in g ab ou t an ag en cy ’s own co nd uc t.”

Rep or te rs Co mm. , 48 9 U.S. at 77 3; se e FLRA , 51 0 U.S. at 49 5- 96

.

The EPA as se rts th at th ere is a pu bl ic in te res t in di sc lo si ng th e co ll ect ed CAFO

inf or m at ion be cau se it pr ov id es th e pu bl ic wit h in fo rm at io n ab ou t th e ag en cy ’s effor ts

to im pl em en t th e Cl ean W at er Act. Bu t th e di sc lo su re of na m es , a d d r e s s es , ph on e

nu m be rs , e-m ai l ad dr es se s, an d GPS co or di na te s d oe s n ot di rect ly sh ed li gh t on th e

ag en cy ’s pe rfo rm an ce of it s st at ut or y du ti es

. Se e 48 9 U.S. at 77 3. The EPA arg ue s

in st ead th at th e di sc lo su res wil l in di rect ly pr om o t e t h i s pu bl ic in te res t by sh owi ng

th at th e ag en cy fo ll owe d th ro ug h o n i t s co m m it m en t to ga th er CAFO in fo rm at io n

-1 5-fro m

ex is ti ng so ur ces an d dem on st rat in g th at th e ag en cy is su ccee di ng in it s ef fo rts

to crea te a co m

pr eh en si ve in ve nt or y

of i nf or m at io n a bo ut CAFOs

.

The EPA’ s co nt en ti on is un co nv in ci ng , be cau se ot he r re co rd s res po ns iv e to th e

FOIA req ue st s ad dr es s th os e two pu bl ic in te res ts wit ho ut in va di ng pe rs on al pr iv acy.

The EPA’ s 20 12 m em or an du m of un de rs ta nd in g wit h th e Ass oc ia ti on of Cl ean W at er

Adm in is tra to rs de ta il s th e ag en cy ’s co ll ab or at iv e effo rt wit h th e Ass oc ia ti on to fo cu s

on “ id en ti fy in g CAFOs an d ob ta in in g pe rti ne nt in fo rm at io n ab ou t CAFOs on a st at e by st at e ba si s fo r us e” by th e EPA. The m em or an du m ex pl ai ns th e ag en cy ’s “ pl an to

ta ke th e fo ll owi ng st ep s to ach ie ve ” th e li st ed ob jecti ve s, i n cl ud in g th at th e EPA

wou ld “ [u ]se be st effo rts to faci li ta te th e co ll ect io n an d tra ns fer of CAFO in fo rm at io n

cu rren tl y m ai nt ai ne d by st at es ” to th e ag en cy

. Ano th er in te rn al do cu m en t se ts fo rth

an “Impl em en ta ti on W or kp la n” th at ou tl in es “ sp eci fic ta sk s” to m eet th e ag en cy ’s

“ act io n i te m s” an d e st ab li sh es a ti m e frame for co ll ect in g t he CAFO da ta

.

The reco rd s al so sh ow th at th e ag en cy fo ll owe d th ro ug h on it s pl an

. An e-m ai l

fro m an EPA e m

pl oyee in Nov em

be r 20 12 ex pl ai ne d t o a Fl or id a st at e of fic ia l th at

th e ag en cy ha d co m

pl et ed fo rty-two t e l e ph on e cal ls wit h st at e of fic ia ls to co ll ect

CAFO in fo rm at io n. Th e e

- mai l at ta ch ed a st an da rd ag en da us ed fo r th os e cal ls

, whi ch in cl ud ed d is cu ss io ns ab ou t th e “ [a]m ou nt an d fo rm at of st at e pe rm it ti ng

reco r d s fo r CAFO da ta el em en ts ,” al on g wit h th e “ [e]xch an ge of in fo rm at io n”

be t w e e n t h e r e sp ect iv e St at e an d th e EPA. The re is a pr es um pt io n of reg ul ari ty

acco rd ed to th e EPA’ s co ll ect io n e f f or ts

, an d th e ag en cy reco rd s de sc rib ed ab ov e

l arg el y ad dr es s th e pu bl ic in te res t in kn owi ng ho w t he ag en cy pr oc eed ed to co l l e c t

CAFO in fo rm at io n i n t he wake of t he GAO repo rt. Se e Ray , 50 2 U.S. at 17 9.

The di sp ut ed sp read sh eet s th em se lv es co ul d be di sc lo se d in red act ed fo rm an d

st il l in fo rm th e pu bl ic ab ou t th e ag en cy ’s co ll ect io n effo rts

. Se e id

. at 17 4, 17 7- 79

. If in fo rm at io n im

p l i c a ti ng a su bs ta nt ia l pr iv acy in te res t were red act ed

, th e

sp read sh eet s wit h co lu m

ns refl ect in g on ly syste m pe rm it st at us , ci ty, co un ty, an d zi p

-1 6-co de wou ld refl ect th e sc op e an d co m pr eh en si ve ne ss of th e EPA’ s co ll ect io n effo rts

w i t h ou t in tru di ng on th e pe rs on al pr iv acy of CAFO own ers

. The m arg in al pu bl i c

in te res t in d i s c lo si ng pe rs on al in fo rm at io n su ch as na m es , st reet ad dr es se s, ph on e

nu m be rs , e-m ai l ad dr es se s, an d GPS co or di na te s is de min imi s

. To reco gn iz e a pu bl ic

in te res t in di sc lo su re of pr iv at e in fo rm at io n m erel y to ve rif y th at it ha s be en co ll ect ed

wou ld swa ll ow th e ru le th at Exe m pt io n 6 p r ot ect s ag ai ns t cl earl y un warra nt ed

in va si on s o f pe rs on al pri va cy

.

The EPA su gg es ts th at Co ng res s, ha vi ng req ui red pu bl ic di sc lo su re of pe rm it s

an d per m it ap pl ic at io ns , pl aced a pr em iu m on ci ti zen in vo lv em en t i n t he reg ul at or y

pr oc es s un de r th e Cl ean Wat er Act. The refo re, th e ag en cy arg ue s, th ere m us t be a

pu bl ic in te res t in rel eas in g pe rs on al in fo rm at io n ab ou t CAFO own ers to th e

r e q u e s t e r s. The Cl ean W at er Act, ho wev er, di d no t am en d th e pu bl ic in te res ts th at

are rel ev an t un de r FOIA

— i

. e

. , s h ed di ng li gh t on an ag en cy ’s pe rfo rm an ce of it s

st at ut or y d u t i es

. Tha t th e req ue st ers m ay se ek to vi nd ic at e po li ci es un de rlyin g th e

Cl ean W at er Act do es no t af fect th e FOIA an al y si s u nd er Ex em pt io n 6. Se e FLRA

, 51 0 U.S. at 49 9.

All to ld

, we co nc lu de t ha t th e EPA’ s di sc lo su re of sp read sh eet s co nt ai ni ng

pe rs on al in fo rm a t i o n ab ou t own ers of CAFOs wou ld in va de a su bs ta nt ia l pr iv acy

in te res t of th e own ers whi l e f u r t h e rin g li tt le in th e way of pu bl ic in te res t th at is

co gn iz ab le un de r FOIA. Und er th os e ci rcu m st an ces , di sc lo su re “ wou ld co ns ti tu te a

cl earl y un warra nt ed in va si on of pe rs on al pr iv acy,” 5 U.S.C. § 55 2( b) (6 ); se e FLRA

, 51 0 U.S. at 50 0- 02

, an d it was an ab us e of d i s c r e t i on fo r th e ag en cy to co nc lu de

ot he rwis e. Acco rd in gl y , th e ag en cy reco rd s a t i s s ue were ex em pt fro m m an da to ry

di sc lo su re. Ca mpa ig n f

or Fami ly Far ms , 20 0 F .3d at 1 18 9.

The Farm Bu reau an d th e Pro du cers Co un ci l ur ge th is co ur t to go fu rth er an d

di rect th e en try of in

jun ct iv e rel ie f th at wou ld pr ev en t th e EPA in it s di sc ret io n fro m

di sc lo si ng th e reco rd s. W e ex pl ai ne d in Ca mpa ig n fo r Fami ly Far ms th at no rm al ly,

-1 7-“ an ag en cy ha s di sc ret io n t o d is cl os e in fo rm at io n wi th in a FOIA ex em pt io n, u nl es s

so m et hi ng in de pe nd en t of FOIA pr oh ib it s di sc lo su re.” Id

. at 11 85

. The as so ci at io ns

co nt en d th at th e Pri va cy Act is a so ur ce of la w in de pe nd en t of FOIA th at fo rb id s

di sc lo su re. The y rel y on a pr ov is io n of th e Pri va cy Act th at pr ev en ts an ag en cy fro m

di sc lo si ng an y reco rd whi ch is co nt ai ne d in a syst e m of reco rd s wit ho ut th e pr io r

writ te n co ns en t of th e in di vi du al to who m th e reco rd pe rta in s, un le ss di sc lo su re of th e

reco rd wou ld be req ui red un de r FOIA. 5 U.S.C. § 55 2a (b )(2 ). The as so ci at io ns al so

co nt en d th a t i t w o u l d be arb it rary an d cap ric io us un de r th e APA fo r th e EPA to

rel ea s e i n f

or m at io n co nt rary to an in te rn al ag en cy po li cy th at al le ge dl y req ui res

cat eg or ic al wit hh ol di ng of in fo rm at io n su bjec t t o Ex em pt io n 6 . The EPA res po nd s

th at th e ci te d pr ov is io n of th e Pri va cy Act do es no t ap pl y to th e reco rd s at is su e in th is

cas e, an d th at th e ag en cy

ha s n o i nt ern al po li cy

in pl ace t ha t wo ul d hav e pr oh ib it ed

di s c l o s u r e i f th e ag en cy ha d ap pl ie d Exe m pt io n 6. The reco rd was no t de ve lo pe d,

ho wev er, co nc ern in g an y in te rn al ag en cy po li cy , an d th e di st ric t co ur t— ha vi ng

di sm is se d th e cas e fo r la ck of st an di ng —d id no t ad dr es s whe th er in jun ct iv e rel ie f was

ap pr op ria te on ei th er gr ou nd as se rte d by th e as so ci at io ns

. W e th eref or e rem an d th e

cas e fo r fu rth er p ro ceed in gs on th is qu es ti on

.

* * *

Fo r th e fo reg oi ng reas on s, th e jud gm en t of th e di st ric t co ur t is rev ers ed

, an d th e

cas e is rem an de d fo r fu rth er p ro ceed in gs co ns is te nt wit h t hi s o pi ni on

.

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