Opinion ID: 382657
Heading Depth: 2
Heading Rank: 2

Heading: Applicability of the Act to This Case

Text: 23 Having determined that the district court erred in requiring a special nexus between a record of First Amendment activities and the agency's system of records, we must turn to an examination of whether the agency violated the Act by making the videotape of the meeting with the analysts. The threshold issue in this regard is whether the videotape is a record of the exercise of First Amendment rights. We do not think the fact that the means of storing information in this case was a videotape makes it any less a record for purposes of the Act. See Save the Dolphins v. United States Department of Commerce, 404 F.Supp. 407, 410-11 (N.D.Cal.1975) (holding that a motion picture film is a record for purposes of the Freedom of Information Act, 5 U.S.C. § 552 (1976)). As long as the tape contains a means of identifying an individual by picture or voice, it falls within the definition of a record under the Privacy Act. 24 As to the content of the videotape, the analysts maintain that it depicts them questioning the Bureau's action and complaining of it in a heated fashion. Such complaining falls within the First Amendment rights of public employees. See Branti v. Finkel, 445 U.S. 507, 100 S.Ct. 1287, 63 L.Ed.2d 574 (1980); Givhan v. Western Line Consolidated School Dist., 439 U.S. 410, 99 S.Ct. 693, 58 L.Ed.2d 619 (1979); Pickering v. Board of Education, 391 U.S. 563, 88 S.Ct. 1731, 20 L.Ed.2d 811 (1968); Tygrett v. Barry, 627 F.2d 1279 (D.C.Cir.1980). More specifically, a petition by a federal employee to one above him in the executive hierarchy is covered by the First Amendment. Swaaley v. United States, 376 F.2d 857, 863, 180 Ct.Cl. 1 (1967); accord, Givhan, 439 U.S. at 415-16, 99 S.Ct. at 696; Pilkington v. Bevilacqua, 439 F.Supp. 465, 472-76 (D.R.I.1977), aff'd per curiam, 590 F.2d 386 (1st Cir. 1979). Here, the videotape showed employees complaining to their employer about work-related grievances. It thus is a record of the exercise of First Amendment rights, and its creation violates subsection (e)(7) unless the agency can establish that one of the exceptions stated therein was met. 25 It is clear that no such exceptions apply in this case. 6 The agency concedes that no statute expressly authorizes the making of the videotape. It is also undisputed that the participants in the meeting did not expressly consent to the videotaping, nor is there any assertion by the agency that the record was made in connection with an authorized law enforcement activity. Thus, it would appear that the analysts do state a viable claim of a violation of subsection (e)(7). 26 This does not mean that the analysts must necessarily prevail on their claim below. First, there is some disagreement between the parties as to which, if any, of the analysts participating in this appeal were depicted by voice or picture in the videotape. Although we hold that if the voices or pictures were depicted, the videotape would constitute a record under the Act, we cannot, on the facts presented, determine whether such was the case. 27 Second, in order to establish jurisdiction in the district court, the analysts would have to show that the making of this record had an adverse effect on them as required by subsection (g)(1)(D) of the Act. The analysts argue that they properly alleged the adverse effect to them (in their complaint) since among other things . . . (they) have been identified as malcontents within the Agency. Accordingly, their promotion, transfer and assignment opportunities have been adversely affected. Appellants' Reply Brief at 5. However, they concede that the district court did not rule on this question because of its holding that the Act was not applicable. Id. at 3. 28 Finally, in order to be entitled to the damage remedy they seek, the analysts must establish that the agency acted in a manner which was intentional or willful. 5 U.S.C. § 552a(g)(4). The agency argues that its action was based on its desire to preserve a record of the meeting for other analysts affected by the classification decision who were unable to attend. The agency asserts that the idea to record the meeting actually came initially from one such analyst. The agency points out that it volunteered to destroy the tape when it became aware that the analysts were upset about its having been made, but the offer was refused by the analysts' union. 29 If these assertions are found to be true, we have serious doubts whether the agency action was a willful and intentional violation of the Act which would justify the assessment of damages. However, we are not in a position to decide this question. The factual disputes existing in this case must be decided by the district court on remand. Of course, even if the analysts are not entitled to damages, they may nevertheless be awarded some other remedy, such as destruction of the videotape.