Document: 456 U.S. 615 102 S.Ct. 2054 72 L.Ed.2d 376 FEDERAL BUREAU OF INVESTIGATION et al., Petitionersv.Howard S. ABRAMSON. No. 80-1735. Argued Jan. 11, 1982. Decided May 24, Syllabus Respondent journalist filed a request with the Federal Bureau of Investigation (FBI) pursuant to Freedom Information Act (FOIA) for documents relating FBI's transmittal White House information concerning individuals who had criticized Presidential administration. The FBI denied under, inter alia, Exemption 7(C) FOIA, which exempts from disclosure "investigatory records compiled law enforcement purposes" when release such would "constitute an unwarranted invasion personal privacy." After unsuccessful administrative appeals, respondent suit in District Court enjoin withholding requested documents. While was pending, provided certain documents, and then modified his seek only cover letter House, along accompanying "name check" summaries containing culled files on question, attached granted motion summary judgment respect material withheld 7(C). Appeals reversed, holding that except those may have been duplicates files, failed show were purposes, accordingly unavailable even though constitute privacy. Held : contained originally purposes does not lose its 7 exemption where is reproduced or summarized new document prepared other than but continues meet 7's threshold requirement being purposes. Pp. 621-632. (a) Although Appeals' construction as turning purpose sought be prepared, included collected, plausible one face statute, it reasonable statutory language. language reasonably construable protect part otherwise nonexempt compilation essentially reproduces substantially equivalent all earlier record made uses. This more accurately reflects Congress' intention, consistent Act's structure, fully serves 623-629. (b) legitimate interests protecting under are satisfied by exemptions, 6, protects against privacy, 5, predecisional communications within agency internal reasons remain intact recompiled another 629-630. (c) result this case principle FOIA exemptions narrowly construed, since there no expanded agencies envisioned Congress. Pp.630-631 (d) concern possible misuse governmental partisan political activity mandate any might activity. Once established investigation lead listed harms 7, exempt. Congress thus created scheme categorical exclusion did invite judicial weighing benefits evils case-by-case basis. P. 631 212 U.S.App.D.C. 58, 658 F.2d 806, reversed remanded. Kenneth Geller, Washington, D. C., petitioners. Sharon T. Nelson, respondent. Justice WHITE delivered opinion Court. 1 (FOIA), 5 U.S.C. § 552 (1976 ed. Supp.IV), require interfere effective enforcement, impede administration justice, produce specified consequences. 552(b)(7).1 sole question presented whether loses exempt status incorporated into enforcement. 2 * Howard Abramson professional interested extent used obtain derogatory about opponents. On June 23, 1976, specific 1969 particular administration.2 grounds 552(b)(6) (Exemption 6) 552(b)(7)(C) 7(C)), both invasions Abramson, believing first flawed specificity, much broader request,3 failure "reasonably describe sought" required 552(a)(3). 3 In December 1977, after unsuccessfully appealing denials agency, United States Columbia records. 84 pages some deletions. rejected Bureau's assertions deleted v. Dept. Justice, Civ. Action 77-2206 (Jan. 3, 1979). response, submitted affidavit explaining justification each deletion. light released affidavit, request, seeking single consisting one-page memorandum J. Edgar Hoover John Ehrlichman, together approximately 63 information, existing 11 public figures. 4 found rather went rule validly invoked Government because materials Government's FBI, (Nov. 30, exception original files,4 sustain burden demonstrating therefore 806 (1980). To reach conclusion, claim applicable taken Thus, noted, invocation rejected. Because interpretation has important ramifications agencies, persons whom compiled, general public, we certiorari. 452 937, 101 3079, 69 951 (1981). We now reverse. II 6 sets forth policy broad order "to ensure informed citizenry, vital functioning democratic society." NLRB Robbins Tire & Rubber Co., 437 214, 242, 98 2311, 2327, 57 159 (1978); EPA Mink, 410 73, 80, 93 827, 832, 35 119 (1973). Yet realized private could harmed types nine refused. Here concerned intended prevent premature investigatory action. provision exempted available party." A sweeping given courts permitted unlimited merely classifying them As result, underwent major revision 1974. amended, authorizes unless can demonstrate six harms. production (A) proceedings, (B) deprive person right fair trial impartial adjudication, (C) (D) disclose identity confidential source and, criminal authority course investigation, conducting lawful national security intelligence furnished source, (E) investigative techniques procedures, (F) endanger life physical safety personnel." 552(b)(7). 8 indicates review asserted privilege requires two-part inquiry. First, must shown "compiled purposes." If so, results Act.5 9 comes us, agreed It also settled name check developed personalities Finally, disputed if met purposes—the decision protection III 10 No express answer legislative history. resolved favor construing following manner. attachments, constituted "record." "record" qualify exemption, regardless gathered recorded impact produce. supported distinguishing between information. "[T]he very clearly apply use documents." U.S.App.D.C., at 65, F.2d, 813.6 "document" Appeals, treated unit deciding qualifying turns collected. claimed appears form identical memorialization. view tenable interpretation, equally document, sent case, contains previously reasons, arguable subsequent inclusion purpose. itself pointed way alternative indicating protected attachments Those their later duplicate summaries, hardly should different prior quoted verbatim document. That purpose, consideration 7. 12 permits same reflected form. relevant reproducing verbatim, longer qualifies exemption. derivative completely differently although content maintaining confidentiality strong. view, however, non-exempt Moreover, statute embraced intention Congress, structure Act, statute.7 13 definition term "record."8 Throughout history 1974 amendments, Representatives Senators interchangeably terms "documents," "records," "matters," "information."9 Furthermore, determining released, consistently focuses nature effects disclosure. enumerating expressly directed "[a]ny segregable portion record" "provided requesting deletion portions . ." 552(b). differentiate among contents treat indivisible When requested, permissible divide parts exempt, based kind respective parts. 14 amendments two ways. substituting word "records" "files," "consider claimed, avoid possibility impermissible 'commingling' agency's placing file legitimately kept confidential." U.S., 229-230, S.Ct., 2320-2321.10 Second, objectives Exemption, reviewing "loo[k] reasons" allowing Id., 230, 2321. harm demonstrated reaction line cases decided Circuit read files.11 amendment "specify exemption" "affording matters blanket exemption." 120 Cong.Rec. 36626 (1974), 1975 Source Book 413 (statement Rep. Reid). enumeration these categories undesirable consequences believed disclosing type outweigh benefits. There nothing suggest, reason believing, preferred outcome simply non-law-enforcement record. 15 transferred withdraw transmitted slightly objectives, distinction makes little sense.12 correct disclosed, position leaves obvious means intact. Conversely, initially private, creates substantial prospect existence, will served. IV 16 Neither persuaded several arguments submits support below. 17 reject argument particular, suffices privacy interest individuals. Even so inquiry what constitutes considered regard stemming prevent. Assuming comparable disclosures questionable proposition itself,13 companion halt individual trial, interrupt safeguard techniques, well-being personnel. compensate potential disruption flow deterred speaking critical compiled-for-law-enforcement construed specified. 18 For reason, today our Sears, Roebuck 421 132, 148-154, 95 1504, 1515-1518, 44 29 (1975), 552(b)(5), mandatory advisory final decision. behind give-and-take decisional process, violated once chooses adopt text official view. explained above, cannot said here. well function. 19 oft-repeated caveat Department Air Force Rose, 425 352, 361, 96 1592, 1599, 48 (1976). basic disclosure, recognized served exemptions. asked expand Congress: "It necessary operation allow keep Investigation." S.Rep.No. 813, 89th Cong., 1st Sess., (1965). Reliance narrow particularly unpersuasive conceded respondent, Government, urges formalistic reading Act. 20 undeniable requested. Sears supra, 149, 1515. Rather, assessment produced harms, exclusion; basis.14 V 21 find adopted while lacks frustrate hold requirements now-law-enforcement Of course, establish originated refused consider showing sufficient remanded court further proceedings opinion. 22 So ordered. 23 BLACKMUN, BRENNAN joins, dissenting. 24 552(b)(7), withhold (Emphasis added.) holds petitioner declares "[o]nce [in 7], exempt." Ante, (emphasis added). 25 I escape conclusion substituted "information" "[t]he deals 'agency records,' abstract." Forsham Harris, 445 169, 185, 100 978, 987, 293 agree O'CONNOR's reveals chose "information," advisedly. Court's unwillingness give plain meaning judges evaluating claims parse determine piece presents convincing me, why deviation desirable, respectfully dissent. 26 O'CONNOR, MARSHALL 27 Frankfurter limits follows: 28 large. They constraints imposed function society. matter verbal recognition certainly, gainsay ascertain words legislature. go beyond usurp power democracy lodged elected judge rewrite neither enlarge nor contract it. Whatever temptations statesmanship policy-making wisely eschew interpolation evisceration. He creation. out patent nonsense contradiction. 30 [T]he sure crossing adjudication legislation alert necessity cross instinctive, trained, reluctance do so." Frankfurter, Some Reflections Reading Statutes, 47 Colum.L.Rev. 527, 533, 535 (1947). 31 approach spirit. Instead, redrafts phrase "were purposes," ante, 623 added).1 Unfortunately, none usual supports result. doubt straightforward concedes "tenable," 624, "plausible," 631, sparse provides, admits, 623, "[n]o answer" regarding leaving overriding presumption controls construction. Court, absurd forced conclude meant Exemption. 32 Under circumstances, rejection viewed effort perfect alteration. Since reform task constitutionally allocated believe errs. 33 A. 34 "[S]tatutory 'must begin itself,' '[a]bsent expressed contrary, ordinarily regarded conclusive.' " Bread Political Committee FEC, 455 577, 580, 1235, 1237, 71 432 (1982) (citations omitted). approaching moreover, presume care himself brings bear interpretation. begin, therefore, focusing attention pertinent At issue case2 seven-word exempt: Exemption's syntax unambiguous: twice modified, first, "investigatory," then, evidently "investigatory" purposes."3 36 parties before contends erred finding issue, perhaps "not would, blush, seem over: fit respondent.4 37 logic compelling canons peculiar cases. emphasized before, enumerated "[were] explicitly exclusive," 79, (1973), "must construed." (1976) omitted).5 preferring 'the principal us choose most favoring disclosure.' 366, 1601, quoting Vaughn Rosen, 173 187, 193, 523 1136, 1142 (1975). concoct genuine doubts language, 38 facts present arise.6 proclaims Chief Marshall wrote century half ago: "The legislature collected they employ. Where ambiguity words, room construction." Wiltberger, Wheat. 76, 95-96, L.Ed. (1820). B 39 elementary enjoys robust favor,7 true cannot, every instance, counted said. "are strictly defeat legislature." 95. "clearly intention" contrary dislodge apparent conclusive," Consumer Product Safety Comm'n GTE Sylvania, Inc., 447 102, 108, 2051, 2056, 64 766 (1980).8 40 rejects without identifying "obvious" evidence expressed" congressional mean something says.9 fact, candidly admits history," explains, perhaps, nearly devoid references 41 cites four times during None citations provides anything like displacing Exemption.10 directly addresses question. sum, basis whatever ignoring Act.11 C 42 side, sure, entitled "patently consequences," Brown, 333 18, 27, 68 376, 381, 92 442 (1948), possibly intended. not, leads results, level lesser charge. words: 43 sense." 628 (footnote short, accuses having arbitrarily drawn materials. 45 free draw lines cavil long respects constitutional proprieties. make business second-guess Legislature's matters. Line-drawing, all, frequently arbitrary decisions sensibly subjected review.12 46 "In objectives," philosophy full disclosure," (1965), permit access shielded unnecessarily view," come "unwilling hands." 832. scarcely needs repeated ultimate objective requiring society, needed corruption governors accountable governed." (1978) Clearly, comports objective, mandates political, "law enforcement," Unquestionably, intent enacting singlemindedly costs. that, costs exceed weighed benefits, deliberations delineated language," FOIA's exclusive Senate described balancing process: easy balance opposing interests, impossible either. Success lies providing workable formula encompasses, balances, yet places emphasis fullest disclosure." Ibid. completed arduous demanding attempted insulate product tampering preserve admonishing "availability public" limited, "except specifically stated." 552(c) ed., Supp.IV) presumes suggest struck "makes sense" "[i]n objectives." point directions, primary focus other, sometimes compelling, interests. enshrined open attack ill-advised, but, exactly represents compromise competing policies, absurd" 49 hopes sense," errs, unless, "sense" refers found, logic, policy. 50 assumes through inadvertence inattention, pen slipped amending Proceeding basis, helpfully undertakes "records 51 quick out, creation advantages. notes "information [that been] function." 630. suggests redaction guarantee exist concludes "[i]t results." Evidently, arrives it, "absurd consequences" otherwise, "the suggest[s]" Colum.L.Rev., 533. 52 finishing touches legislation. Our job extend attempting fathom produced, blemished perceive be. solely effect intentions, best determined, enacted Absent indication own Therefore, Section 552(b) entirety provides: "This section are— "(1)(A) authorized criteria Executive secret defense foreign fact properly classified order; "(2) related personnel rules practices agency; "(3) (other 552b title), manner leave discretion establishes withheld; "(4) trade secrets commercial financial obtained privileged confidential; "(5) inter-agency intra-agency memorandums letters party litigation "(6) medical similar privacy; "(7) personnel; "(8) examination, operating, condition reports by, behalf of, responsible regulation supervision institutions; "(9) geological geophysical data, including maps, wells. "Any shall subsection." documents: "—Copies [FBI] aides, years 1970, individuals: Lowell Weicker, Jr.; Thomas Meskill; Joseph Duffey; Dodd; Alphonsus Donahue; Lupton; Wallace C. Barnes; Emilio Q. Daddario. transmitted. "—An uncensored copy Oct. Ehrlichman Mr. transmits 'memoranda' Ehrlichman. "—A data. data receipt signed recipient 1969, letter." 60, 808 revised "—All written requests oral telephone employed 1971, 1972, 1973, holder federal elective office candidate office. replies telephonic response paragraph one. "—Any index indices paragraphs two." 61, 809. separately "satisfied 'name check' "less sure" "attachments," unable precise created. stated "attachments" already existence House's requests, modification, determination investigation. Attorney General's Memorandum Amendments (1975) reads undue direction examine involved. is, prescribed interpret necessarily mean, admittedly recompiled. test "reflect[s] result[s] efforts" civil matters." referring decisions. Simpson Vance, 208 270, 648 (1980), held State Biographic Register extracted FOIA. Lesar 204 200, 636 472 surveillance underlying understand cases, inconsistent today. dissenting accepted premise "plain" sense dissent But premise: notion plain, pernicious oversimplification." Monia, 317 424, 431, 409, 412, 87 (1943) (Frankfurter, J., dissenting). Given rhetorical beside point. duty fairly imbedded harmonious manifested." Lion Oil 352 282, 297, 77 330, 338, 331 (1957) concurring part). Records Disposal 1978 helpful create "agency record," 183-184, 986-987, Acts aid resolving case. See, e.g., 17033 Operations Judiciary, (Pub.L. 93-502), Book, 94th (Joint Comm. Print 1975) (hereafter Book) (remarks Sen. Hart); 17034 335 Kennedy); Reid); 36877-36878 468 R. Byrd); H.R.Conf. 93-1380, p. 230. toto presence falling squarely Senator Hart, sponsor amendment, amendment's respond cumulatively proceeding imminent likely. Weisberg 160 71, 74, 489 1195, 1198 cert. denied, 416 993, 94 2405, 772 (1974); Aspin Defense, 231, 237, 491 (1973); Ditlow Brinegar, 161 154, 494 1073 Center National Policy Review Race Urban Issues Weinberger, 163 368, 502 370 (1974). These Hart's erected "stone wall" preventing file. 332. See 227-229, 2319-2320, (1978). Conference Report similarly states designed communicate disapproval H.R.Conf.Rep.No.93-1380, 12, 229. disapproved cut far broadly infer subsidiary questions scope Government. still ongoing compromising restricting essential Deputy General Schmults Second Judicial (May 9, 1981): risk persons, nonfederal officials, informants reticent Many actually stopped cooperating example, feared identities disclosed Act." Kennedy, Foreword: Is Pendulum Swinging Away Information?, Harv.Civ.Rights-Civ.Lib.L.Rev. 311, 315 Update (Dept. Sept. 1981) ("[E]xperiences DEA indicate widespread perception sources investigators FOIA"). Drug Enforcement Administration 40% convicted felons, many identify helped convict them. Oversight, Hearings Subcommittee Operations, 97th 165 (1981) Jonathan Justice); see Task Violent Crime, Final disappear put use. 166, 1524, (Document become discloseable referred opinion; "reasons [remain] applicable"). unwarranted" "clearly" unwarranted. meaningful. noted 379, n. 16, 1607, (1976), dropped 33158-33159 368-372 (letters President Ford 34162-34163 377-380 Cong. Moorhead) bill reported Committee, 88 Stat. 1563. 7(C), assumed provide overlapping protection. crafted deter interagency transfer remembered securing interdict agencies. challenge validity finding. ruling concerns Nixon eleven Each prominently associated liberal causes and/or outspoken opposition war Indochina waged nation time. defendants contend special appointment functions. pleadings relate duties FBI. absolutely Accordingly, burden, plaintiff point." App. Pet. Cert. 27a. rephrases "sole decision" "whether 623. contested Strictly speaking, narrower text, exempt," effect, shields portion[s]" "is Apparently, assertion state conclusions says "formalistic," 621. "express answer," liking. Courts refer construed," E.g., Founding Church Scientology Inc. Bell, 195 363, 367-368, 603 945, 949-950 (1979) ("[t]he exemptions"); New England Medical Hospital NLRB, 548 377, 384 (CA1 1976) (" 'disclosure, secrecy, dominant Act,' 'narrowly construed' omitted)); Charlotte-Mecklenburg Authority Perry, 571 195, (CA4 1978) ("Exemptions construed,' 'favoring disclosure' Cox 576 1302, 1305 (CA8 ("The subsection omitted)). emphasizes "does authorize limit availability stated. histories dictate S.Rep.No.813, (1965) (the language" added)); S.Rep.No.93-854, reprinted (Pub.L.93-502), 158 cited Book). According compiled" gathered." ordinary, everyday meanings "compiled" ambiguous. Blackmun suggests, 632, 'information' 'records' 7(C)." Notably, attempt cite interpreting apart tangible forms recorded. "[FOIA] Surely, complete how accurate, satisfy TVA Hill, 153, 184, 29, 2279, 2296, 117 ("[w]hen confronted unambiguous face, look guide meaning") (BURGER, J.). English practice, contrast, excludes external process classical approach, 'mischief' remedy, said," "it debates Parliament meant, changes became act." Plucknett, Concise History Common Law (5th 1956). "wooden doctrine" excluding "since days Marshall," "pernicious oversimplification," 431-432, 412-413, loosely drafted "records." position, instances few Members heat floor discussions debates, seemed freely. 625-626, 9. contrary," 1238, (1982), overcome statute. debate over wisdom interchangeably. quotes Congressman's statement specify successfully resist 627. Third, override Circuit, expansively interpreted predecessor. 627, 11. And finally, correspondence supporting overlap 629-630, 13. 226-234, 2319-2323, Significantly, shows aware alleged misconduct hoped mandated discourage incidents. 17039 348 Weicker); 36866-36867 440-441 36872 453 Hart). too "mak[e] merits adopted, comprehensible. why, need realize often summarizes summarized. opinions carried media, perspective, work perceptions reporters editors. Photocopies, hand, Any significance photocopy derives exclusively Indeed, usually satisfies releasing retaining original. photocopy, inevitably discloses entire duplicates, part. drew rational thought likely insight creators requesters justify furthermore, concluded never convey distinction, plainly applied point, patently Whether advised sound entirely matter—and

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