Opinion ID: 1967106
Heading Depth: 2
Heading Rank: 2

Heading: Disclosure as an Authorized Use.

Text: Worldwide centers on the manner the DPPA permits disclosure of personal information to support its claim to access of the information. Under each category, disclosure is ultimately permitted based on the use of the information. Thus, Worldwide argues that its use falls within the various categories because the reformatting of the information onto disks facilitates the usefulness of the information, and it only sells its computer disk to those who would be permissible users of the information under one of the authorized categories of use. Worldwide asserts this satisfies the purposes behind the DPPA because its use of the information not only assists those who are properly authorized to utilize the information, but the restrictions on its consumer base also protects the privacy interest sought to be maintained by Congress. [3] Before we turn to examine Worldwide's claims in light of the relevant statutes, it is important to recognize that our goal in construing statutes is to ascertain the legislative intent. Perkins v. Madison County Livestock & Fair Ass'n, 613 N.W.2d 264, 269 (Iowa 2000). This is done by first focusing on the language used by the legislature. Id. In doing so, we consider the statute in its entirety and interpret its provisions in relationship to the whole. State v. Carpenter, 616 N.W.2d 540, 542 (Iowa 2000). This provides us the best opportunity to discern the interpretation and construction that best effects the purpose of the statute. See State v. Iowa Dist. Ct., 620 N.W.2d 271, 273 (Iowa 2000). The language of the DPPA as a whole makes it plain that Congress and, in turn, our legislature, sought to limit access to personal information in state motor vehicle records by both protecting citizens from the improper use of such information, while allowing access for legitimate purposes or uses. At the same time, it imposed a gatekeeping function on the state departments of motor vehicles to exercise discretion to disclose personal information when used for the purposes described in subsection (b). Thus, disclosure essentially depends on the use sought for the information, and the states are charged with the responsibility to ensure that disclosure is limited to those circumstances where Congress determined that the use for the information trumps the competing privacy interest. Yet, we do not read the statute to permit disclosure in the manner asserted by Worldwide. Our review of the disclosure requirements of 18 U.S.C. § 2721(b) reveals some of the categories of permissible uses identify a specific user. See § 2721(b)(1) (use by government agency or private person); § 2721(b)(3) (use by legitimate business); § 2721(b)(6) (use by insurer); § 2721(b)(8) (use by private investigative agency); § 2721(b)(9) (use by employer); § 2721(b)(13) (use by any requester with written consent). Other categories solely consider the manner of use. See § 2721(b)(2) (use in connection with motor vehicle safety, prevention of motor vehicle theft, and promotion of driver's safety); § 2721(b)(4) (use in connection with court and agency proceedings); § 2721(b)(5) (use in research activities); § 2721(b)(7) (use in providing notice to owners that their vehicle has been towed or impounded); § 2721(b)(10) (use in connection with private toll transportation services); § 2721(b)(11) (for any use when consent is obtained); § 2721(b)(12) (for bulk distribution of surveys, marketing or solicitations when consent obtained); and § 2721(b)(14) (any state authorized purpose pertaining to the operation of a motor vehicle or public safety). Yet, even the permissible users of nonconsensual information are limited in the manner the information may be used. See § 2721(b)(1) (for use by a government agency in carrying out its functions ); § 2721(b)(3) (use by business to verify or to obtain information); § 2721(b)(6) (use by insurer in connection with claims investigation); § 2721(b)(8) (use by private investigator for any permitted purpose); § 2721(b)(9) (use by employer to obtain or verify information); § 2721(b)(13) (use by requester if based on written consent). Thus, for example, a government agency could not receive personal information under § 2721(b)(1) if the information was being used for a private purpose. See DeVere, 781 A.2d at 29. Similarly, a private entity could not obtain personal information if used for a private purpose or if the entity was otherwise not acting on behalf of a government agency in carrying out its functions. See 18 U.S.C. § 2721(b)(1). Additionally, a licensed private investigator could not receive personal information under § 2721(b)(8) if the information was not being used for one of the permitted purposes. Id. § 2721(b)(8). In fact, a user is permitted access to information only when the information will be used for the permitted purpose, subject only to two exceptions. The Act imposes no restrictions on the type of use when the requester of the information has obtained consent of the individual to whom the information pertains. Id. § 2721(b)(13). Likewise, any type of use will support disclosure when in response to requests the State previously had obtained the express consent of the person to whom the information pertains. Id. § 2721(b)(11). We think this approach taken by Congress to the dissemination of personal information in motor vehicle records contemplates that the person or entity requesting disclosure of the personal information also be the person or entity that will use the information for the statutory purpose. Thus, nonconsensual disclosure of information is permitted only for approved uses, and disclosure is not permitted if the requester is not seeking to use the information for the statutory purpose. The statute does not permit disclosure to a nonuser, who only seeks information to redisclose it for use under a permitted purpose. Redisclosure of the information is allowed only for a permitted purpose and can only occur if the information was initially disclosed by the state to an authorized recipient. Id. § 2721(c). Clearly, any other interpretation would render the statute impractical, and essentially render the state incapable of performing its gatekeeping function under the statute. The important task of protecting individual privacy interests recognized by Congress would be undermined by permitting a requester to determine the eligibility to receive the information. Thus, the claimed restrictions on Worldwide's customer base do not justify disclosure under the Act. Worldwide must itself be an authorized user. Worldwide argues that its process of placing the information onto disks for authorized users to use is itself a use of the information for a statutory purpose. Worldwide emphasizes that its disks benefit authorized users, such as law enforcement agencies, by allowing them to quickly and efficiently utilize the information. We understand how the computerization of records benefits legitimate users of the information, but we think Congress would have specifically identified reformatting information as an authorized use if it intended to permit disclosure of the information for that purpose. Congress provided a long list of uses but failed to include the use engaged in by Worldwide. Generally, the express mention of one thing in a statute implies the exclusion of others. Callender v. Skiles, 591 N.W.2d 182, 186 (Iowa 1999). Thus, when a legislative body delineates exceptions, it is presumed that no others were created or intended. Elliott v. Iowa Dep't of Pub. Safety, 374 N.W.2d 670, 672 (Iowa 1985). Clearly, Congress did not provide a specific category of use for businesses like Worldwide. Instead, we think Congress envisioned that the categories of use relate to the actual use of the information that directly serves the permitted purpose and involve those entities that carry out such purposes. We recognize, as well, that the disks marketed by Worldwide do not serve any of the categories of purposes in any manner until the disks are actually sold. Thus, the actual and specific use of the information by Worldwide does not fit into any permitted purpose under the statute until resale. Yet, resale or redisclosure to authorized users is not the test for disclosure by the state, and redisclosure to an authorized recipient alone does not satisfy the test of disclosure. See 18 U.S.C. § 2721(c). Worldwide cannot utilize the use of another person or entity to support disclosure. Notwithstanding, Worldwide argues that it, at least, is entitled to personal information for distribution to government agencies under § 2721(b)(1) and for distribution to private investigators under § 2721(b)(8). Subsection (b)(1) permits disclosure: For use by any government agency, including any court or law enforcement agency, in carrying out its functions, or any private person or entity acting on behalf of a Federal, State, or local agency in carrying out its functions. Worldwide asserts that it is acting on behalf of a Federal, State, or local agency in carrying out its functions by reformatting the information onto disks for use by various government agencies. A review of the evidence in this case reveals Worldwide is not acting on behalf of any government agency in carrying out its functions by reformatting the information onto disks. Worldwide is a private business that computerizes information that can relate to a government function in a general way, but it does not act as a government agency and does not act for a government agency. It sells and markets its disks to a vast array of entities, including lawyers, private investigators, insurance companies, and others. Clearly, it acts for itself and does not carry out a function of government. A private entity does not act for government, and carry out government functions, by manufacturing a product used by government. Thus, Worldwide qualifies as a private entity under the language of § 2721(b)(1), but does not use the information for the permitted purpose that would enable the Department to exercise its discretion to disclose the information. For the same reason, Worldwide does not fall within the discretionary disclosure category for private investigators. Although Worldwide is a licensed private investigator, its use of the information does not fit within any permitted purpose as required under 18 U.S.C. § 2721(b)(8). We conclude the use of the information by Worldwide does not support disclosure. The purpose for which Worldwide seeks the information does not fall within any purpose delineated in 18 U.S.C. § 2721(b).