Document: 425 U.S. 352 96 S.Ct. 1592 48 L.Ed.2d 11 DEPARTMENT OF the AIR FORCE et al., Petitioners,v.Michael T. ROSE al. No. 74-489. Argued Oct. 8, 1975. Decided April 21, 1976. Syllabus Under United States Air Force Academy's Honor Code, which is administered by a cadet committee, cadets pledge that they will not lie, steal, or cheat, tolerate among their number anyone who does. If investigatory team finds hearing before an Board concerning suspected violation warranted, accused may call witnesses, and observers attend. The Board, consisting of eight members, adjudge guilt only unanimous vote but if at least six members concur grant guilty "discretion," returns him to his squadron in good standing. A found without discretion resign, request officers trial court-martial. confidential committee prepares summary, posted on 40 bulletin boards distributed Academy faculty officials. In not-guilty cases, names are deleted. cases deleted posting deferred until has left Academy. Ethics Code violations, for less serious breaches, handled more informally, though similarly basis. Respondents, present former student law review editors researching article, having been denied access case summaries honors ethics hearings (with identifying data deleted), brought this suit compel disclosure under Freedom Information Act (FOIA) against Department certain (hereinafter collectively Agency). District Court camera inspection granted Agency's motion summary judgment ground were "matters . related solely internal personnel rules practices agency," thus exempted from mandatory Exemption 2 FOIA. Appeals reversed, holding exemption inapplicable. Agency had made contention, rejected, fell within 6 as constituting "personnel medical files similar would constitute clearly unwarranted invasion personal privacy." Appeals, while disagreeing with Court's approach, did hold any prior court turn over respondents proper removed covered all part summaries, held because maintained its statutory burden sustaining action means affidavits testimony further inquiry was required produce inspection, cooperating redacting records so delete references other information. Held : 1. limited exemptions do obscure basic policy disclosure, secrecy, dominant legislative objective P. 360-362. 2. does generally apply matters, such here involved, there genuine important public interest. Pp. 362-370. (a) phrasing reflected congressional dissatisfaction "internal management" § 3 Administrative Procedure designed, Senate Report clear, delineate between, one hand, trivial matters and, other, substantial might have legitimate 362-367. (b) concern administration discipline procedures affect training military careers. 367-390. 3. create blanket files. With respect "similar files" Congress enunciated policy, be judicially enforced, involving balancing private interests. Regardless whether documents whose sought "personnel" "similar" files, nondisclosure sanctioned unless showing privacy, redaction permit nonexempt portions appropriate 6. 370-376. 4. Even considered wholly exempt regard category although constituted relating cadets, implicating privacy values. 376-377. 5. err ordering examination, procedure represents "a workable compromise between individual rights 'and preservation (G)overnment information,' " goal 378-381. limitation "clearly unwarranted" invasions indicates intend matter merely it could guaranteed trigger recollection identity person whatever, vested courts responsibility determining de novo properly invoked. 378-380. Respondents' "with information deleted" respected confidentiality interests embodied comported tradition confidentiality. 380-381. Cir., 495 F.2d 261, affirmed. Daniel M. Friedman, Washington, D. C., petitioners. Barrington Parker, Jr., New York City, respondents. Mr. Justice BRENNAN delivered opinion Court. 1 University Law Review disciplinary systems service academies article Review,1 petitioners honor hearings, deleted, reading practice post copies throughout distribute officials.2 Thereupon Act, amended, 5 U.S.C. 552 (1970 ed. Supp. V), Southern petitioners, supervise Agency).3 Courtgranted petitioner judgment—with out first requiring production inspection—holding unreported even deletions 552(b)(2) statute.4 Second Circuit disclosure. 261 (1974). argued alternatively, however, privacy," 552(b)(6). inapplicable concluded subject identification stigma, possibility another not, context distribution official proscribed Pet. Cert. 32A. disagreed stating "ignores practical realities" militated conclusion "that dissemination lessens concerned cadets' right Six." F.2d, 267. But refused hold, either (the Agency) required, court, (respondents) or, Six covers all, of, issue." Id., 268. Rather, carried Court, imposed "sustain(ing) action" testimony, "the must now themselves court" "and cooperate judge We think highly likely combined skills Agency, applied yield edited sufficient purpose well safeguard affected persons claims Ibid. (Footnotes omitted.) certiorari, 420 923, 95 1115, 43 392 (1975). affirm. 4 * factual findings respecting Codes See 28A-29A, nn. 5, enrolled pledge: "We nor us does." Committee composed cadets. Suspected violations referred Chairman Committee, appoints three-cadet which, advice legal adviser, evaluates facts determines hearing, warranted. no closed. should witnesses testify behalf, each ordinarily send two observe. return finding upon vote. verdict guilty, circumstances required. equivalent returned results three alternative dispositions: resign Academy, Officers, At announcement verdict, reminds discussed outside room than representative. brief statement, usually page, significant prepared Committee. As we said, Cadets instructed read need, beyond mere curiosity, know contents, notice "for use only." Case circulated deleted; cadet's name after 7 breaches conduct structured, similar. many instances, informally commander, representative, concerned. These necessarily written up complete file maintained; placed back determined value population. Distribution substantially same confidentiality, too, custom practice. II 8 Our discussion conveniently begin again emphasizing thrust V). canvassed some length years ago EPA v. Mink, 410 73, 79-80, 93 827, 832, 35 119, 127 (1973), need briefly history here. revises 3, section, 1002 (1964 ed.). revision deemed necessary "Section recognized falling far short goals came looked withholding statute statute." supra, 79, 127. therefore structured general philosophy full agency delineated language." S.Rep.No.813, 89th Cong., 1st Sess., (1965) S.Rep.No.813). To make crystal clear words "to pierce veil administrative secrecy open light scrutiny," 263 provided 552(c) nothing "authorize limit availability public, except specifically stated ." Consistently objective, repeatedly states shall available 'to public,' 'for inspection.' Supra, 128. There are, compelled They nine set forth 552(b). these Act. "These explicitly exclusive, ," 128, narrowly construed. Vaughn Rosen, 157 U.S.App.D.C. 340, 343, 484 820, 823 (1973); 173 187, 193, 523 1136, 1142 (1975); Soucie David, 145 144, 157, 448 1067, 1080 (1971). sum, said 80, 128: 9 "Without question, broadly conceived. It seeks long shielded unnecessarily view attempts enforceable secure possibly unwilling hands. Subsection scheme determination types Executive Branch option keep confidential, chooses. explained, 'an easy task balance opposing interests, impossible either. Success lies providing formula encompasses, balances, protects yet places emphasis fullest responsible disclosure.' p. 3." 10 Mindful purpose, then consider involved here, discussing, First, 2, Second, III traceable "any management agency." sweep wording led agencies "rang(ing) insignificant." H.R.Rep.No.1497, 2d (1966) H.R.Rep.No.1497). An earlier effort minimizing sweep, S.1666 introduced 88th 1963, published Federal Register; orders when "solely distinction highlighted reference latter "more tightly drawn" exempting language. S.Rep.No.1219, 12 (1964). No final taken Congress; passed bill, reached House too late action. Renegotiation Bannercraft Clothing Co., 415 1, 18 n. 18, 94 1028, 1037, 39 123, 136 bill 1965 became 1966 dropped Register consolidated into single subsection. Thus, plainly evidences practices," narrower reach Act's management," matters. 13 end inquiry. Reports finally enacted differ scope narrowed exemption. stated: 14 "Exemption relates agency. Examples personnel's parking facilities regulations lunch hours, statements sick leave, like." 8. 15 Report, declared: 16 "2. Matters agency: Operating rules, guidelines, manuals Government investigators examiners cover 'matters management' employee relations working conditions routine withheld law." 10. 17 Almost difference accurately reflects purpose.5 Those relying House, rather Senate, interpretation permitting interest, done where prevent circumvention result subjects regulation procedural guidelines used discharging regulatory function. See, E. g., Tietze Richardson, 342 F.Supp. 610 (SD Tex.1972); Cuneo Laird, 338 504 (DC 1972), rev'd grounds Sub nom. Schlesinger, 368, 1086 City Concord Ambrose, 333 958 (ND Cal.1971) (dictum). Moreover, primary drafting Report. Hearings H.R. 5012 Subcommittee Operations, 29-30 (1965), cited 14. applicability circumstances, because, recognized, "where knowledge help outsiders circumvent standards. Release (sanitized) quasi-legal records, poses danger effective operation Academy." 265 (footnote omitted). Indeed, materials regulation, precisely order assure compliance known content Codes. appear, nonetheless, Report's "(o) perating procedure" supports much broader circumscribed examples. This argument recently rejected Judge Wilkey speaking Columbia U.S.App.D.C., 193-194, 1142: 19 "Congress intended interpreted specifically. our view, carries potential wide swath 'operating procedure. .' 'would gives precious little guidance not. Although equally terse, line drawn minor those 20 "This standard, guide, be, can certainty, consistency clarity. 21 "Reinforcing 'the intent (of FOIA) governmental significantly harm specific interests.' (Soucie (1971)). result, '(t)he requires requirements construed broadly, narrowly.' (Ibid.; (1973).) faced conflict history, principal FOIA choose most favoring 22 "The second major consideration reliance fact report both houses Congress. unanimously Bill amendment, conference reconcile conflicting provisions. 23 (W)e viewing wary sponsors, views expressed Senate. Professor Davis said: 'The principle quite elementary: depend Houses, just one.' (See K. Davis, Treatise 3A.31, 175 Supp.)) By passing entire opportunity object (or concur) voiced floor colloquy). being case, rely Report." 24 For reasons Wilkey, focus disclosures enable regulated "choose Report" regard. 25 also surer indication intent." 34A 21. unnecessary take firm stand issue," concluding approach here." 265. different conclusions applying centered disagreement materiality significance based "(b)y definition meant control people cannot sphere voluntary participation function publication Cert., 34A. hand construction Two, (the) fall ambit" "(s)uch interest Government." 26 agree Appeals. implication obvious, particularly unique role military. What contexts equal application here: "constitutes specialized community governed separate civilian," Orloff Willoughby, 345 83, 94, 73 534, 540, 97 L.Ed. 842, 849 (1953), command obedience invests officer particular position responsibility." Parker Levy, 417 733, 744, 2547, 2556, 41 439, 451 Within discipline, accuracy effect superior's depends critically customary reliability subordinates, instinctive subordinates unquestioned superior.6 importance considerations maintenance force able ready fight effectively renders them undeniably essential integrity critical military's relationship civilian direction. Since enforced ingrain ethical reflexes responsibilities future officers, select candidates apparently unlikely serve standards, follows nature instruction adequacy inadequacy substantive public's stake careers underscored own proclamations cadet-administered educational program. agree: 27 "(Respondents) attention various items newspaper excerpts, press White Press Release, illustrate extent Cadet Code. show, generated enhanced acts itself. Of course, encouragement, treatment education publicly financed furnish portion country's leadership. sectors society, including themselves, fairness system leads, forced resignation very study bears additional witness degree professional academic student-run discipline. (This factor) differentiate(s) daily like relate 'Solely agency.' (emphasis opinion). 28 that, situation risk applicable designed authorize otherwise secret bearing directly propriety actions public. simply relieve assembling maintaining reasonably expected interest.7 fit description. significance. Their entails burden. given interpretation, (as preserve anonymity) upheld exemption." 266.8 IV 29 Additional questions exempts question clause privacy" modifies files." argues distinguishes constitutes On reading, files," judicial end, erred remanding 30 argue suggested opinions treat making requirement. "(i)t connection casts personnel, medical, protection sixth 30A-31A. "(W) e dealing 'personnel' 'similar files.' key words, 'a privacy' 266. 31 views, find support claim created Judicial uniformly reason exist absence filed Wine Hobby USA, Inc. IRS, 502 133, 135 (CA3 1974); Rural Housing Alliance Dept. Agriculture, 162 122, 126, 498 77 (1974); 820 Getman NLRB, 146 App.D.C. 9, 213, 450 670, 674 Congressional kind included abundantly clear. nonconfidential insulated stored construct require individual's scrutiny." device adopted achieve exemption, threatened, privacy. 32 Both disclosing eschew case. Thus states, 11: 'clearly provides excluding kinds individual." Similarly, states: phrase enunciates involve affairs scrutiny, information."9 Plainly itself strike confine striking contrary, courts, balancing" interests.10 files: 33 (6) ' privacy.' Where purely authority (6), ultimately determine dispute invoked." Ackerly Ley, 137 136-137, 1336, 1339-1340, (1969) (ellipses original). 34 135. Congress' recent amending explicit agreement decisions11 consistent conclusion. 552(b) ed., V) "(a)ny segregable record requesting deletion subsection."12 And 552(a)(4)(B) added claimed thereof withheld." (Emphasis supplied.) accompanying legislation explains, distinguishing 36 look beneath label challenged. 37 ". (W)here (courts will) examine purposes apply." S.Rep.No.93-854, 38 remarks Senator Kennedy, sponsor amendments, clearer. "For example, characteristics individuals underlying 6, 'personnel 120 Cong.Rec. specifying, confirmed what perhaps earlier. noted Health, Education, Welfare Selective Service Veterans' Administration recognizes13 conception files,"14 nevertheless redacted form sufficiently protected. Rep.No. Sat 11, detailed identified award pension benefit compilation unidentified statistical records." emphasized, health, welfare, selective disclosed public." lack attributes commonly understood. Two characterized Regulations show factor insufficient characterize files,"15 "similar." significantly, implicates values; 267, "identification disciplined possible consequence anonymous expose formerly men lifelong embarrassment, disgrace, disabilities, loss employment friends." generally, e. 135-137; 125-126, 76-77; Robles EPA, 843, 845-846 (CA4 1973). collected contain "vast amounts data," profile file: showing, he born, parents, lived time time, high school examinations, evaluations work performance. drastically limited, customarily true supervisory (apart department itself), frequently himself. widely disseminated examination fellow pertain alleged Codes, justified instructional tool better train discharge exacting functions. Documents treated manner common meaning file" 42 secondly taking qualification applies, improperly ordered eliminate violations. is, substance, recognition disclosure" demonstrates "(t)he ineffectiveness excision named government reports Brief Petitioners 17-18. contention merit. implies barred whatever. ignores unwarranted"16 privacy.17 "de novo" invoked constrain matters.18 seen histories, correct discharged instance Supra ; Supra. 44 entail discount probability identities Academy.19 Respondents tradition. deleted," regarding weighed viewpoint vantage familiar, staff, aspects career Despite summaries' group never cadet, forgotten encounter remained military, posed unknowing colleagues instructors trivial. conclude policies business affirmance "no guarantee 'in know' tongues, later eroded fabric loyalty," sufficed protect stage proceedings enjoining 268, "is (respondents)." therefore, (ordered) Six: information.' 269. 45 sure, risks identifiability, human approximation imperfection, consequences exposure admittedly severe. familiar technique contexts20 concepts, U.S., 127; 5; repeat, every incidental 46 Affirmed. 47 STEVENS took decision Chief BURGER, dissenting. 49 "hard bad law," unusual surely worse law. Today, basis about process, academy system, interprets definitively federal governing "right know" citizen. 50 my makes carry jurisprudential baggage. Consequently, reasonable custody undermined. addition, district burdened them. 51 (1) decide issue categorized proviso assuming, Arguendo, foregoing material invasion, process attempted judge. 52 correctly notes Congress, enacting 2nd (1966). Having acknowledged necessity balance, blandly thereby frustrates refusing weigh, realistically, grave implicit release information, form, relatively inconsequential "need" complaint. 53 opprobrium segments society attribute allegations dishonor commissioned Armed Forces. (1974), quoting 91, 539, 848 (1953). stigma imposes accepted trust1 abused erasable, realistic sense, passage subsequent exemplary conduct. broken sword, torn epaulets, Rogue's March ritual lessen indelibility stigma. Significantly, midshipmen "Inchoate officers"2 traditionally standards subjected overtones dishonor.3 mode punitive separation court-martial dismissal. Ellman, U.S.C.M.A. 549, C.M.R. 329 (1958). noted, unrealistic conclude, "not guilty" "discretion" exonerates anything technical sense term. 54 Admittedly, release, power excising parts. But, admits, attempt "sanitize" still leave distinct identifiable injured. manifest Privacy 1974, 552a "governmental citizens S.Rep.No.93-1183 (1974) U.S.Code Cong. & Admin.News, 6916, indeed difficult willingness citizen severe damage reputation students invade prepare journal article. Its equated "protect(ing) scrutiny supplied), rendered meaningless. 55 (2) ineffectual accomplishing protecting place intolerable inflict. 1974 amendments exempt, provided, original construct, effect, new document. Yet, mandated sweeping reconstruction product entirely provision contemplates acting "rewrite editor" material. 56 fair reflection intent, confronted "split-personality" reaction, seeming passion comparable needless 57 Accordingly, I reverse 58 BLACKMUN, 59 past hesitated consistently provide congressionally exemptions. FAA Administrator Robertson, 422 255, 2140, 164 Grumman Aircraft, 421 1491, NLRB Sears, Roebuck 132, 1504, 119 (1973). 123 fear, opposite. 60 A. 552(b)(2), extends "related doubt Force, staff qualifies "agency," 522(b)(2), recognizes. Ante, 355-356. thought, established academies, codes existence tradition, see 743-744, disciplining move along Government-supplied education, qualify practices" nature, smacks problems practices. agency's public's, afforded. great language petitioners' me, obvious applies respondent Rose ardently desired, removes eager grasp. 61 accept rationale majority "substantial Government," "solely" Surely, secondary by-product, measure "sole relationship," concept. fitness, Academy-limited apart formal courts-martial Uniform Military Justice. 62 B. 522(b)(6), supportive opposite reaches today. Once again, save above restrictive "personnel," "medical unwarranted. unembellished. almost inconceivable me willing today attach essence ultimate law's physician-patient privilege establishes this. Anyone minimal contact medicine extension reasoning (1969), seemingly approved 373. 63 If, then, something proposition accept, invaded, afford hard imagine personal. seems blinding realities concludes, does, Rose's demands court-ordered redaction, impractical solution, rationalization "on Academy," 355, officials, all. "publication" restricted private, facilities. corps alone administration, pedagogical appear large number, "family" area confinement important. apply, awkwardly five places, indeed, one. 64 add assistance history. often cuts ways confusing struggle it, ante, 362-370, demonstrates. 65 Finally, note candid involved. Today's decision, reality "particularly military," questionable Rose. So pendulum swings far. 66 fear strikes blow operate, sad old institutions mortally wounded away jeopardy embarrassment lesser incidents past. 67 68 REHNQUIST, 69 "privacy," arises decisions Paul 424 693, 1155, 405 (1976). custodians chose disseminate them, Fourteenth Amendment Constitution prohibited custodian doing so. Here chosen Not challenged That dissenting point out, consequent Part Justice, contemplate virtual guise record. Blackmun reversed. Respondent Michael Rose, graduate First Lieutenant editor charged preparing study. appeared book, Prayer Relief: Constitutional Infirmities Academies' Conduct, Systems (NYU Lawrence Pedowitz Charles Diamond were, filed, respectively current Editor-in-Chief Review. Upon documents, officials gave Reference Manual, Lesson Plans, Hearing Procedures, explaining "(s)ome reader given" "(t)here way how used." App. 155. appeal Secretary Secretary, letter Assistant, 552(b)(6), 12-30, PP 4(f) 4(g)(1)(b), CFR §§ 806.5(f), (g)(1)(ii) 121-122. pertinent part: "(a) Each follows: "(3) Except paragraphs subsection, agency, (A) describes (B) accordance place, fees (if any), followed, promptly person. "(4)(A) "(B) complaint, complainant resides, business, situated, Columbia, jurisdiction enjoin complainant. novo, contents subsection sustain "(b) section "(2) agency; "(6) flies privacy; "Any "(c) section. resignations graduates Force. 552(b)(5), "inter-agency intra-agency memorandums letters party litigation since already offered waived accordingly partial judgment, disclose 35A-38A. complied order. Stokes Brennan, 476 699, 703 (CA5 1973); Hawkes 467 787, 796 (CA6 1972); Stern 367 1316, 1320 Consumers Union States, Veterans Administration, 301 796, 801 (SDNY 1969), dismissed moot, 436 1363 (CA2 1971); Benson GSA, 289 590, 595 (WD Wash.1968), aff'd, 878 (CA9 1969) (Exemption raised appeal). Handbook Wing (1970) recites: "Former War, Newton Baker, inexact untruthful soldier trifles lives government. young needs trust commander. times expensive increasingly complex weapons systems, airmen safety men." 47. Note, Act: Seven-Year Assessment, 74 Col.L.Rev. 895, 956 Comments Proposed Amendments Section Bill, Notre Dame Law. 417, 445 (1965). 201, 1150 (1975) (Leventhal, J., concurring). suggests through weaken principally misconduct assured absolute reports. assuming speculation raises unpersuasive conducted remand. further, 3: "At broad 'freedom information' law, "It must, necessity, abrogated subordinated. disclosure." "A General statutes type well, speaks "general exemption" "held bounds 9. E.g., 345, 825 156, 1079 (1971); Bristol-Myers Co. FTC, 138 22, 26, 935, 938-939 (1970). Accord, 126-127, 78 Cf. 552(a) (2)(C) providing: "To details publishes opinion, statement manual instruction." amendment evident approval accommodate dual pp. 31-32 13-16. sparse precise term detail characterization Welfare, Service, Administration. 9; 11. S. 1666, source particular, refers 265, 267 (analysis comments 1666) below drew 806.5(f) "files 806.5(g) latter: "Examples those: containing reports, pertaining action, taken." 806.5(g)(1) (ii) Fed.Reg. 4701 (1971) supplied). After Appeals' inter alia deleting last four 806.23(f)(1)(ii), 7904 (1975), alteration event insignificant addition determination. 846 209, 212, National Labor Relations Treasury urged "clearly" 1160 Practice Judiciary, (Treasury), 491 (NLRB) (1965); 56, 230 257 1160, (Department Defense; objecting "heavy" Clearly privacy). 5012, 151 (testimony Clark R. Mollenhoff, Vice Chairman, Sigma Delta Chi Advancement Information; advocating retention 6). terms objected retained, "proper balance," "scope bounds," 7, compiled enforcement purposes, stands marked contrast. 12471, 93d Sess. originally amended 17033, 17040, 17047 6819-6820 "constitute meet several conditions. response Presidential Conference "clearly," 33158-33159 (letters President Ford Sen. Kennedy), 34162 Moorhead) reported 88 Stat. 1563. equitable decline exercise discretion. renewed One prime shortcomings remedy unauthorized records. directed threats palpable possibilities. explains exclude (and) Can Be 6's Unnecessary information." examples Revenue Rulings Cumulative Bulletin Internal American Bar Association, Opinions Professional (1967). 268 18. 848; President's commission (uses words) 'reposing special confidence patriotism, valor, fidelity abilities' appointee. punitively dishonorable discharge) Any offense court-martial, regardless limitations punishment committed enlisted personnel. Manual Courts-Martial P 126D (1969). Goodwin, U.S.C.A.M.A. 647, 271 (1955). Op.Atty.Gen. 332 (1855). Article 933, example: officer, Cadet, midshipman convicted unbecoming gentleman punished direct."

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