Document: 493 U.S. 146 110 S.Ct. 471 107 L.Ed.2d 462 JOHN DOE AGENCY and John Doe Government Agency, Petitionersv.JOHN CORPORATION. No. 88-1083. Argued Oct. 2, 1989. Decided Dec. 11, Rehearing Denied Jan. 22, 1990. See 1064, 884. Syllabus In connection with a 1978 periodic audit, respondent defense contractor petitioner Defense Contract Audit Agency (DCAA) corresponded concerning respondent's accounting treatment of certain costs. Eight years later, federal grand jury investigating possible fraudulent practices by issued subpoena requesting documents relating to the cost allocation question. Respondent submitted DCAA Freedom Information Act (FOIA) request for any subject matter their correspondence. The denied citing, inter alia, Exemption 7(A) FOIA, which exempts from disclosure "records or information compiled law enforcement purposes" under circumstances. Two days later requested records were transferred Federal Bureau Investigation, renewed FOIA request, citing 7(A). sought review in District Court, ruled that petitioners not required turn over dismissed complaint, stating would jeopardize proceeding. Court Appeals reversed, ruling may invoke 7 protect materials investigatory when originally collected but have since acquired investigative significance. Held: be invoked prevent created for, gathered purposes. plain words statute contain no requirement compilation effected at specific time, merely require objects invokes Exemption. erred interpreting word "compile" mean "originally compiled," "compiled" naturally refers process gathering one time generated on an earlier occasion different purpose. This reading recognizes balance struck Congress between public's interest greater access Government's need kinds is supported FOIA's legislative history. Pp. 153-158. 850 F.2d 105 (CA 2 1988), reversed remanded. BLACKMUN, J., delivered opinion REHNQUIST, C.J., BRENNAN, WHITE, O'CONNOR, KENNEDY, JJ., joined. also filed separate statement, post, p. 158. concurring opinion, STEVENS, dissenting 159. SCALIA, MARSHALL, joined, 160. Edwin S. Kneedler, Washington, D.C., petitioners. Milton Eisenberg, respondent. Justice BLACKMUN Court. 1 Once again, we are faced issue (FOIA Act), 5 U.S.C. § 552. concerned Act's 7, 552(b)(7). That provision purposes, only extent production such (A) could reasonably expected interfere proceedings, (B) deprive person right fair trial impartial adjudication, (C) constitute unwarranted invasion personal privacy, (D) disclose identity confidential source, including State, local, foreign agency authority private institution furnished basis, and, case record criminal course investigation conducting lawful national security intelligence investigation, (E) techniques procedures investigations prosecutions, guidelines prosecutions if risk circumvention law, (F) endanger life physical safety individual. . ." 3 Our focus Exemption's threshold purposes." 4 * Corporation (Corporation) contractor. As such, it audits (DCAA), branch Department Defense.1 32 CFR §§ 357.2 357.4 (1988). 1978, exchange correspondence took place proper auditor, letter dated May year, claimed costs should been charged identifiable programs instead technical overhead account. About $4.7 million 1977 discussed. Corporation, July replied defended its allocation. App. 22-28. No further action regarding those was taken during next eight years. 1985, office United States Attorney Eastern New York instituted into Corporation. A February 21, 1986. It question On September 30, 1986, "that related way matter" Id., 19. Upon advice Assistant Attorney, November 18, Exemptions Act. 29. Investigation (FBI). 92. 6 3, 1987, this directed FBI. 46. 49. After exhausting administrative remedies, present litigation, seeking withholding documents, York. 6, 11. due course, moved compel preparation "Vaughn Index."2 8 opposed disclosure, Index, answers propounded interrogatories ground compliance these proceeding provide might useful anticipated litigation. ordered prepare Vaughn Index answer interrogatories. sua sponte, however, material court examination camera rather than given directly 62, 66. 9 without hearing, contested then stating: "[W]e satisfied there substantial material, index [the] interrogatories, proceeding." Pet. Cert. 13a-14a. 10 appealed Second Circuit. remanded case. 105, upon implicitly relied, did because they "compiled 109. observed "were seven before began 1985," id., 108, 1974 amendments "make clear governmental entity cannot withhold significance." acknowledged ordinarily beyond scope discovery thus enable potential defendant response construct charge. concluded, concern more properly addressed Congress.3 Ibid. ruled, nonetheless, remand allowed bring Court's attention "any particular would, disclosed, expose some secret aspect jury's investigation." 110. 11 refused stay mandate; 28, 1988. 15a. remand, concluded Circuit's turned 86. January 10, 1989, order requiring furnishing 96, same day Circuit entered temporary pending granted full stay. 488 1306, 109 852, 102 952 (MARSHALL, chambers). 12 Because importance sensitivity differing interpretations pertinent language 7,4 certiorari. 489 1009, 1116, 103 179 (1989). II 13 repeatedly has stressed fundamental principle public animates FOIA. "Without question, broadly conceived. seeks permit official long shielded unnecessarily view attempts create judicially enforceable secure possibly unwilling hands." EPA v. Mink, 410 73, 80, 93 827, 832, 35 119 (1973). "basic purpose reflected 'a general philosophy unless exempted clearly delineated statutory language.' " Air Force Rose, 425 352, 360-361, 96 1592, 1599, 48 (1976), quoting S.Rep. 813, 89th Cong., 1st Sess., (1965). "The basic ensure informed citizenry, vital functioning democratic society, needed check against corruption hold governors accountable governed." NLRB Robbins Tire & Rubber Co., 437 214, 242, 98 2311, 2327, 57 159 (1978). Reporters Committee Press, 749, 772-773, 1468, 1481-82, 774 There are, sure, exemptions set forth "But limited do obscure policy secrecy, dominant objective Act." U.S., 361, 1599. Accordingly, "must narrowly construed." Furthermore, "the burden sustain action." 552(a)(4)(B). 14 Despite pronouncements liberal congressional purpose, recognized intended meaningful reach application. occasion, upheld invocation exemptions. supra; Tire, Committee, FBI Abramson, 456 615, 2054, 72 376 (1982). last cited, observed: "Congress realized legitimate interests harmed release types information," therefore provided "specific refused." 621, 2059. Recognizing past abuses, "to workable know keep confidence necessary permitting indiscriminate secrecy." H.R. Rep. 1497, 2d (1966), U.S.Code Cong. Admin.News 1966, pp. 2418, 2423. S.Ct., 832-33. broad provisions favoring coupled exemptions, reveal "balance" struck. III 15 We noted above our here 552(b)(7)'s exemption meets six specified conditions enumerated harms. Before provision, proving existence deciding whether applies, moreover, must mindful observations supplement displace rules discovery. 236-239, 2323-25, 2326-27; 243, 2327 (STEVENS, concurring). Weber Aircraft Corp., 465 792, 801-802, 104 1488, 1493-1494, 79 814 (1984). Indeed, principal intention Congress. F.2d, 108. 16 customary, look initially itself. wording phrase scrutiny simple direct: time. compilation, ordinary meaning, something composed assembled various sources other documents. Webster's Third International Dictionary 464 (1961); Ninth Collegiate 268 (1983). definition seems readily cover already non-law-enforcement Gould Inc. General Services Administration, 688 F.Supp. 689, 698 (DC 1988). 17 Appeals, throughout compiled." 109.5 disagree interpretation view, meaning "compile," or, matter, adjectival form "compiled," does refinement. itself used refer even 622, n. 5, 2060, 5; supra. 18 Respondent, too, sense assembling though put together requests asked as soon available, "not await all requested." 47-48. recognition, twice repeated, having once routine disqualified being again 19 accept distinction drew purposes so distinction. Under statute, made.6 20 If, despite what regard language, advisable examine history enacted amended 1974, conclusion. writing 224-236, 2318-2324, discussed detail. original 1966 form, permitted nondisclosure "investigatory files except available party." Pub.L. 89-487, 3(e)(7), 80 Stat. 251. But agencies had needs confidential, lest hindered placed disadvantage came cases." 224, 2318. 21 To accommodate needs, several respects. 226-227, 2319-2320. Concern expressed Senate floor four recent decisions Columbia applied whenever show document file purposes.7 feared use rule commingle otherwise nonexempt exempt claim protection contents. 22 aim commingling. accomplished two steps. first change "files" "records." second make sufficient. amended, requires demonstrate effectuate 221-222, 229-230, 235, 2323. These changes consideration nature each claimed. 2320-2321. Evasional commingling prevented. says nothing about limiting originating law-enforcement records. 23 (1982), order. lost status summarized new 623, 2060. held continued meet requirements 7. proposition, urged respondent, converse holding—that become recompiled future date purposes—is true. Brief 20. 24 consistently practical approach confronted endeavored apply disclosure. looks reasons determining exemption. e.g., Sears, Roebuck 421 132, 148-154, 95 1504, 1515-1518, 44 29 (1975). applying carefully examined effect protect. 242-243, 2326-2327; 625, 2061. State Washington Post 595, 1957, 358 construed nonfunctional way. 25 judgment proceedings consistent opinion. 26 ordered. 27 Statement BLACKMUN. 28 I add my own account caution. Simply party doubts automatically resolved associated it. situation kind presented can abused, after-the-fact acknowledgment abuse hardly atones damage done reason abuse. Dynamics case* sad consequences former National Aeronautics Space Administration administrator whose indictment ("because concedes ha[d] case," Post, June 24, A24), col. illustrative. Petitioners themselves, see Reply "recognize theoretical abuse." perceive case, resemble Dynamics. concurring. 30 join write separately note within ante, 153, 155, us today. With understanding 31 dissenting. justify application (FOIA), demonstrating calls either ways: (1) (2) subsequently 33 states correct standard "compilation," inexplicably fails facts Ante, 6. "something documents." 153. sufficient "could proceedings." 552(b)(7)(A). primarily designed Therefore, when, virtue "incorporat[ion] 'mosaic,' take principles clear. 34 undisputed called still possession received. DCAA's denied. advised States' Attorney's Office averment affidavit counsel FBI's custody 20, after Exemption.* emphasized, explicit terms 552(a)(4)(B); 152; Tax Analysts, 492 136, 142, 2841, 2846, 106 112 (1989); 755, 1472, "is favor disclosure." 220, 2316, understand most established prosecutor kept naked transfer civilian Such compilation. Appeals' holding, am persuaded entirely correct. met why opportunity prove 36 respectfully dissent. 37 whom MARSHALL joins, 38 fear today's decision confuses clarifies. From prior opinions thought least much clear: "narrowly Julian, 486 1, 8, 108 1606, 1611, 100 (1988); 630, 2063-64, (1982); (1976); cf. 773, 1481, (1989) (Act mandates "full language" (citations inner quotations omitted)); Open Market Merrill, 443 340, 351-352, 99 2800, 2807-2808, 61 587 (1979). today, 152, holding formula recited followed. 39 Narrow construction means, anything, construing ambiguous fashion apply. ambiguous—not, suggests (and dismisses), means compiled" "ever 154-155. Rather, always simply gathering," assembling," 154, often connotation creative activity. When say statesman enviable achievement," baseball pitcher 1.87 earned run average," individuals pulled papers results, produced results. Thus, Roget's Thesaurus Synonyms Antonyms includes following listing synonyms: "compose, constitute, make; up, fill build up; weave, construct, fabricate; compile; write, draw; up (printing ); enter composition etc. (be component )." (S. Roget rev. 1972). 40 If generative sense, purposes—and reasons, shuffles file. possible; considerations suggest preferable one. First all, "record" (unlike "file," Amendments 93-502, 2(b), 88 1563-1564) single containing item information. apparent happens unnatural, "assembled" "gathered" quite natural acquisitive described. 41 Secondly, regime establishes lends unlikely intended. aware go unavailable, basis agency's action, inapplicable description classified, rendered applicable, filed, mere act classification. See, Goldberg 260 U.S.App.D.C. 205, 211, 818 71, 77 (1987), cert. denied, 485 904, 1075, 234 context, greatly reduced possibility providing classification criteria Executive sweeping "law enforcement" file—which term include, note, just civil regulatory well. Pope States, 599 1383, 1386 (CA5 1979). suppose disregard "compilation" made bad faith, hard imagine faith consist loose will opening relevance Compare Pratt Webster, 218 17, 29-30, 673 408, 420-421 (1982) (FBI acts 'law purpose[s]' concerns "a violation law" "at colorable claim' rationality"), Williams FBI, 730 882, 883 (CA2 1984) (FBI's "whether reviewing judicial tribunal believes sound investigation"); Bisceglia, 420 141, 148-151, 915, 919-921, 43 (1975) (IRS power bank absence suspicion taxpayer broken law); Blair 250 273, 282, 468, 471, 63 L.Ed. 979 (1919) (grand resisted raising "questions propriety forecasts probable result individual found accusation crime"). particularly implausible creating revision adding "properly classified" eliminate similar "[e]vasional prevented" withheld unless, "would harms." 156-157. begs extend harms, latter evaded (or illusory) wish disclose, plausible mind. hole drive truck through. 42 necessarily one, unquestionably reasonable one; creates ambiguity; doctrine construing" ambiguity asserts "consistently approach" achieving Government." 157. me, constitutes Congress' ours; unambiguous remote establishing people consider "workable balance" cause believe permeates Consider, example, disequilibrous disposition individual"—namely, withholdable cases, 552(b)(7)(F). "Workable criterion law. "practical consists text, adhering enunciated unclear ones—thereby reducing volume making inescapably made. find impractical, leaves lower courts guess follow (exemptions construed") produce balance"). All names caption case—"John Agency" "John Agency," petitioners, Corporation," pseudonyms. DCAA, Investigation. corporation; tells us, revealed seal Appeals. Solicitor General's states, ii; Tr. Oral Arg. 26, objection petitioners' names. real name "Agency." adhere, pseudonym. Index" derived Rosen, 157 484 820 (1973), 415 977, 94 1564, 873 (1974). "Index" usually detailed affidavit, "permit system effectively efficiently evaluate factual disputed information." U.S.App.D.C., 346, 826. conclusion, North Walsh, 279 373, 382, 881 1088, 1097 England Medical Center Hospital NLRB, 548 377, 386 (CA1 1976); 699 1988); Hatcher Postal Service, 556 331 1982); Fedders Corp. FTC, 494 325, 328 (SDNY), aff'd, 646 560 1980); Gregory FDIC, 470 1329, 1333-1334 Crowell Moring Defense, 703 1004, 1009 1989). disagreement parties how read. state unequivocally qualify 15. disagrees says: appeals 'originally compiled' 7." 13-14. Instead, argues never enforcement, subsequently, "no based case." 14. agree stated: "In instant [the DCAA] independent monitoring Corporation's contracts. 1985. They 'compiled purposes' Subsection (b)(7)." 108-109 court's "thus" believed outset protected place. shortly request. timing transfer, treated dispositive. above, obtained While leave determination pendency serves negate inference chronology raises bona fides solely defeat Miller 779 1378, 1388 (CA8 1985). cases Weisberg Justice, 160 1195 416 993, 2405, 772 (1974); Aspin 231, 491 (1973); Ditlow Brinegar, 161 1073 Policy Review Race Urban Issues Weinberger, 163 App.D.C. 368, 502 370 Army, Civ. Action 86-522-FFF (CD Cal.), 9, 23, A1, 1; N.Y. Times, 3; A24, (editorial: "It brought place"). declaration action. However, declaration, incorrectly 61.

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