Document: 541 U.S. 157 NATIONAL ARCHIVES AND RECORDS ADMINISTRATIONv.FAVISH ET AL. No. 02-954. Supreme Court of United States. Argued December 3, 2003. Decided March 30, 2004. Skeptical about five Government investigations' conclusions that Vincent Foster, Jr., deputy counsel to President Clinton, committed suicide, respondent Favish filed a Freedom Information Act (FOIA) request for, among other things, 10 death-scene photographs Foster's body. The Office Independent Counsel (OIC) refused the request, invoking FOIA Exemption 7(C), which excuses from disclosure "records or information compiled for law enforcement purposes" if their production "could reasonably be expected constitute an unwarranted invasion personal privacy," 5 U. S. C. § 552(b)(7)(C). sued compel production. In upholding OIC's exemption claim, District balanced Foster family's privacy interest against any public in disclosure, holding former could infringed by and had not shown how would advance his investigation, especially light exhaustive investigation already occurred. Ninth Circuit reversed, finding need show knowledge agency misfeasance support remanded case interests consistent with its opinion. On remand, ordered release photographs. affirmed as four. Held: 1. recognizes surviving family members' right respect close relative's images. Favish's contention 7(C)'s is confined control oneself too narrow interpretation Department Justice v. Reporters Comm. Press, 489 749, held concept must encompass individual's himself, but no occasion consider whether those whose data are requested materials also have recognized under exemption. It did explain, however, limited cramped notion. marked contrast 6, requires withholding personnel medical files only "would clearly privacy." comparative breadth — it does include "clearly" uses constitute" instead drafting accident, result specific amendments existing statute. Because documents often persons link official inquiry may mere happenstance, there special reason protect intimate data, general access ordinary course. modifier "personal" before "privacy" bolster view has decedent's pictures. relatives invoke secure own refuge sensation-seeking culture peace mind tranquility, sake reputation some him. proper conclude Congress intended permit members assert rights intrusions long deemed impermissible common cultural traditions. This mean same position individual who disclosure's subject. However, this little difficulty traditions direct disposition deceased's body limit attempts exploit pictures remains purposes. well-established tradition acknowledging over death images been at law. enacting amending 7(C) extend terms, legislated background Attorney General's protects statutory goes beyond Constitution, see id., 762, n. 13. anomalous hold statute provides less protection than understood consequences follow position. Since cannot predicated on requester's identity, violent criminals, make requests, able obtain autopsies, photographs, records deceased victims expense privacy. Pp. 164-171. 2. outweighs disclosure. As rule, citizens seeking subject required explain why they seek information. when concerns present, requester sought advanced significant one, more having sake, likely interest. single decision attempt define reasons will suffice, necessary nexus between served stability both category protected outweigh claim. Here, correctly ruled asserted uncovering deficiencies Government's investigations into death, erred defining showing establish By requiring particular evidence actual impropriety, court's leaves force content. Under rationale, extensive, since once disclosed, belongs public. Thus, where responsible officials acted negligently otherwise improperly performing duties, produce warrant belief reasonable person alleged impropriety might When presumption legitimacy accorded conduct applicable, clear usually displace it. Given FOIA's prodisclosure purpose, stringent standard faithful scheme. Only produced sufficient occurred counterweight scale court balance cognizable documents. put play. Court's first order was set aside superseded remand followed correct approach. 171-175. 37 Fed. Appx. 863, reversed remanded. KENNEDY, J., delivered opinion unanimous Court. CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR NINTH CIRCUIT. Patricia A. Millett argued cause petitioner. With her briefs were Solicitor General Olson, Assistant Keisler, Deputy Kneedler, Leonard Schaitman, Robert M. Loeb. James Hamilton Anthony et al., respondents Rule 12.6 him V. Zener. Respondent Allan J. brief pro se.* JUSTICE KENNEDY 1 us interpret (FOIA), 552. apply fall within one exemptions. 2 749 (1989), we considered scope document issue prohibited whom referred. principal involved criminal record, rap sheet, himself objected pertains circumstances surrounding apparent suicide. initial question extends objects condition scene death. If find statute, then claim outweighed 3 * found dead Fort Marcy Park, located just outside Washington, D. States Park Police conducted took color scene, including concluded suicide shooting revolver. Subsequent Federal Bureau Investigation, committees Senate House Representatives, independent counsels Fiske Kenneth Starr reached conclusion. Despite these investigations, citizen interested matter, Favish, remained skeptical. now proceeding. earlier proceeding, associate Accuracy Media (AIM), applied After National Service, maintained custody pictures, resisted suit behalf AIM Columbia granted summary judgment AIM. Appeals unanimously affirmed. Media, Inc. Serv., 194 F. 3d 120 (1999). 4 Still convinced "`grossly incomplete untrustworthy,'" App. Pet. Cert. 57a, present name, seeking, 11 eyeglasses depicting various parts Like 7(C). Again, production, time Central California. preliminary collateral estoppel effect California lawsuit brought capacity. merits, partial OIC. exception picture eye-glasses, upheld Relying so-called Vaughn index provided narrative description withheld photos, Rosen, 484 2d 820 (CADC 1973) held, first, enjoy 56a. found, interest, "[Favish] sufficiently explained death." Id., 59a. Any purported moreover, "is lessened because regarding 58a. Balancing competing interests, "the disclosure." 6 appeal Circuit, majority remanded, Judge Pregerson's dissent. 217 1168 (2000). majority's view, although investigative "enhanc[e] urgency [FOIA] request," "[n]othing command conditions [disclosure] requesting party he agency." 1172-1173. Furthermore, "Favish, fact, tenders argument which, believed, justify doubts," complete conformity purpose know what government up to." Ibid. so, even face previous death: "Nothing shields disclosing agencies engaged similar investigations. . [I]t feature famous cases generate controversy, suspicion, desire second guess authorities." 1173. read "a look, speculate argue again, scrutiny." 7 Appeals, agreed Although contain relatives, statute's "extends memory tied closely blood love." Nevertheless, balancing relevant based index. While [D]istrict [C]ourt discretion decide basis affidavits, affidavits sufficient," insufficiently detailed." 3d, 1174. examine photos camera and, "consistent [the Appeals'] opinion," "balance benefit obtained release." 8 following photographs: 9 "&#x2022; photograph identified `3 VF's [Vincent Foster's] looking down top berm' released, so explicit overcome entitled `5 focusing Rt. side shoulder/arm' again such nature discoverable focused manner unnecessarily impact family. 12 13 `1 Right hand gun & thumb guard' probative public's know. 14 15 `4 arm' discoverable. 16 focus head thru heavy foliage' discoverable." 45a. 17 panel, majority, dissent, part. 863 (2002). Without providing explanation, all "except photo berm withheld." 864. 18 We petition writ certiorari resolve conflict Courts 538 1012 (2003). four released 2002 unpublished reverse. 19 OIC terminated operations 23, 2004, 28 U.S.C. 596(b)(2), transferred Archives Records Administration, 594(k)(1). Administration substituted petitioner caption case. actions our place continue refer II 20 ground parties possession "compiled phrase used 87. leads contends covered His rests proposition decedent, privacy, means oneself." Brief 4. He quotes Committee, where, prevent said literal understandings concerning person." S., 763. means, says, 21 disagree. confined, argues, "right misreads quoted sentence Committee adopts case's holding. To say "encompass" well. individuals contained 22 explained, "cramped notion" idea. 552(b)(7). provision language pertaining "personnel files," 552(b)(6). adverb "clearly," addition, "whereas refers disclosures `would constitute' encompasses `could invasion." 756. accident drafting. gave consideration See 756, 9, 777, 22. 23 Law investigators interviewed witnesses suspects happenstance. There reason, therefore, give 773. class private citizen," apex." 780. 24 Certain amici rely word decedent. This, too, misapprehends provides. capacity next friend fear reveal detriment posthumous case, different considerations control. They shielded deceased. 25 sworn declaration Court, sister, Sheila Anthony, stated harassed by, deluged requests from, "[p]olitical commercial opportunists" profit 94. particular, she "horrified devastated [a] [already] leaked press." "[E]very I it," wrote, "I nightmares heart-pounding insomnia visualize spent last few minutes seconds life." She opposed disputed [additional] certainly off another round intense scrutiny media. Undoubtedly, placed Internet world consumption. Once my conceivably unsavory distasteful media coverage." 95. "[R]eleasing photographs," continued, painful mother's sister's Lisa Moody (Vince's widow), three children, family." 93. 26 shall below, think Congress' use term "personal privacy" difficulty, member's 27 Burial rites counterparts respected almost civilizations immemorial. generally Encyclopaedia Britannica 851 (15th ed. 1985) (noting "[t]he ritual burial dead" practiced "from very dawn human most world"); Encyclopedia Religion 450 (1987) ("[F]uneral conscious forms ancient, universal, unconscious impulses"). sign society shows members. power Sophocles' story Antigone maintains day universal acceptance heroine's insist brother. Sophocles, Harvard Classics: Nine Greek Dramas 255 (C. Eliot 1909). outrage seeing bodies American soldiers mutilated dragged through streets modern instance understanding decent people lost. Family stake honoring mourning objecting exploitation that, intruding upon grief, tends degrade accord own. addition Indeed, much deeper roots sheets Committee. An early New York typical: 29 "It living enforce here. That itself violated interfering character relative, living, dead, recognized. A privilege given memory, exists feelings, violation deceased." Schuyler Curtis, 147 N. Y. 434, 447, 42 E. 22, (1895). 30 Reid Pierce County, 136 Wash. 195, 212, 961 P. 333, 342 (1998) ("[T]he immediate decedent protectable autopsy decedent"); McCambridge Little Rock, 298 Ark. 219, 231-232, 766 W. 909, 915 (1989) (recognizing murder victim's mother crime photographs); Bazemore Savannah Hospital, 171 Ga. 257, 155 (1930) (per curiam) parents' child's body); Restatement (Second) Torts 652D, p. 387 (1977) publication infant hypothetical "child two heads" objection "inva[sion]" "privacy"). 31 can assume law, scholarship, history enacted amended terms. Those enactments "members pertains," Dept. Justice, Memorandum Public Section Administrative Procedure 36 (June 1967), require "relatives descendants" "possible adverse effects [from disclosure] individual] family," 1974 Amendments 9-10 (Feb. 1975), reprinted Operations Judiciary, (Pub. L. 93-502), Source Book, 5, pp. 519-520, 94th Cong., 1st Sess. (Joint Print 1975). 32 observed Constitution. (contrasting analogous Constitution); Marzen Health Human Servs., 825 1148, 1152 (CA7 1987) law"). instant 33 scheme understood, adopt identity requester. supra, 771. advised child molesters, rapists, murderers, criminals victims. Our ensures allow deny gruesome appropriate cases. inconceivable definition convicted felons without limitations 34 For reasons, agreement 1999); (CA9 2000), lower courts addressed question. See, e. g., Times Co. Aeronautics Space Admin., 782 Supp. 628, 631, 632 1991) (sustaining narrower audiotape Shuttle Challenger astronauts' words, "[e]xposure voice beloved member immediately prior families pain" inflict disruption [to] every portion tape played hearing"), 920 1002 1990); Katz 862 476, 485 (DC 1994) (exempting X-rays Kennedy "additional anguish" family), aff'd grounds, 68 1438 1995); Lesar 636 472, 487 1980) (recognizing, assassination Dr. Martin Luther King, survivors' avoiding "annoyance harassment"). Neither status official, nor fact made public, detracts weighty involved. III 35 ruling object graphic details end terms exemption, directs non-disclosure invasion" "unwarranted" 762. "`what to.'" should dismissed convenient formalism. defines structural necessity real democracy. statement confirms provisions, needs preconceived idea serve. do choose. noted, depend all. touches certain areas defined exemptions, compete cases, protect, degree, uncontrolled State. direction practical meaning usual rule offer inapplicable. 38 Where First, sake. Second, Otherwise, unwarranted. 39 hand, left ad hoc guidance. 776. photographic died mysterious circumstances, justification satisfy requirement performance duties. 40 recognize erred, substantiate agency" investigations." went "tender[ed] insufficient. points credibility impropriety. engage state suspended disbelief regard incredible allegations, panel transformed nothing pleading. rationale extensive. remembered mechanism protective allowing bears out theory, proscribing dissemination. 41 being bare suspicion Rather, State Ray, 502 164 (1991), conduct. 178-179. perhaps working principle. However characterized, Cf. Armstrong, 517 456, 464 (1996) ("`[I]n absence contrary, presume [Government agents] properly discharged duties'"); Chemical Foundation, Inc., 272 1, 14-15 (1926) ("The regularity supports acts officers duties"). today exist records. Allegations misconduct "`easy allege hard disprove,'" Crawford-El Britton, 523 574, 585 (1998), meaningful evidentiary showing. quite extraordinary ignore inquiries matter exercise somewhat precise determination significance historical importance events here, however. 1998 instructions grant motion dispute. 43 ordered. Notes: Briefs ofamici curiae urging affirmance Press al. Deanne Maynard, Elaine Goldenberg, Lucy Dalglish, Richard Schmidt, Bruce Sanford, David B. Smallman, Alice Neff Lucan; Silha Center Study Ethics Jane Kirtley. Karen Tripp Association Physicians Surgeons, curiae.

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