Document: 510 U.S. 487 UNITED STATES DEPARTMENT OF DEFENSE et al.v.FEDERAL LABOR RELATIONS AUTHORITY al. No. 92-1223. Supreme Court of United States. Argued November 8, 1993. Decided February 23, 1994. Two local unions filed unfair labor practice charges with respondent Federal Labor Relations Authority after petitioner federal agencies refused to provide them the home addresses agency employees in bargaining units represented by unions. The concluded that Service Labor-Management Statute (Labor Statute) required divulge and rejected petitioners' argument such disclosure was prohibited Privacy Act 1974. Appeals granted enforcement Authority's orders. It agreed did not bar because would be under Freedom Information (FOIA). In determining FOIA Exemption 6— which exempts from personnel files "the constitute a clearly unwarranted invasion personal privacy"— apply, court balanced public interest effective collective embodied against employees' keeping their private. thereby view that, Department Justice v. Reporters Comm. for Press, 489 U. S. 749, only weighed analysis is extent FOIA's central purpose opening action scrutiny served disclosure. Held: forbids employee collective-bargaining representatives pursuant requests made Statute. Pp. 492-504. (a) supra, reaffirms several basic principles have informed Court's interpretation FOIA: (1) evaluating whether request information lies within scope an exemption bars when it amount privacy, must balance Congress intended protect; (2) relevant this serve core contributing significantly understanding Government's operations or activities; (3) privacy warranted cannot turn on purposes made. 492-496. (b) These are easily applied case. supporting negligible, at best. Disclosure appreciably further citizens' right about what Government up and, indeed, reveal little nothing employing activities. Respondents' unions' were rather than directly FOIA, Statute's explicit policy considerations should imported into balancing analysis, rejected. case, unless FOIA. terms do amend requirements grant requesters special status Therefore, all equal equally qualified information, fact respondents seeking vindicate policies behind irrelevant analysis. negligible FOIA-related substantially outweighed nondisclosure. For most part, seek obtain non-union addresses. Whatever reason these chosen become union members addresses, clear they some nontrivial nondisclosure, avoiding influx union-related mail, perhaps, telephone calls visits, follow Because outweighs interest, 6 applies. thus does require petitioners disclose prohibits release. 497-502. (c) Rather thwart Statute, no more give effect words provisions construed, including Not presented, therefore addressed, respondents' concern ruling will allow refuse other records need order perform duties as exclusive representatives. Finally, leave sector position different private counterparts, assertedly entitled receive National Act, may correct disparity. 502-504. 975 F. 2d 1105, reversed. THOMAS, J., delivered opinion Court, REHNQUIST, C. BLACKMUN, STEVENS, O'CONNOR, SCALIA, KENNEDY, SOUTER, JJ., joined. concurring opinion, post, p. 504. GINSBURG, judgment, CERTIORARI TO THE COURT APPEALS FOR FIFTH CIRCUIT. Christopher J. Wright argued cause petitioners. With him briefs Solicitor General Days, Acting Bryson, Assistant Attorney Schiffer, Deputy Wallace, Leonard Schaitman, Sandra Wien Simon. David M. Smith respondents. brief William R. Tobey, E. Persina, Pamela P. Johnson. Mark D. Roth, Charles A. Hobbie, Stuart Kirsch, Walter Kamiat, Laurence Gold American Federation Employees, AFL-CIO.* JUSTICE THOMAS Court. 1 This case requires us consider civil service representative 5 §§ 7101-7135 (1988 ed. Supp. IV), "clearly invasion" meaning § 552. Concluding would, we reverse judgment Appeals. 2 * controversy underlying arose two unions1 requested agencies2 names supplied work stations, but release 3 response, (Authority), contended Statute), generally provides must, "to law," furnish data necessary purposes. 7114(b)(4). 1974 (Privacy Act), 552a IV). Relying its earlier decision Navy, Portsmouth Naval Shipyard, Ports-mouth, N. H., 37 L. 515 (1990) (Portsmouth), application denied cross-petition review sub nom. FLRA Communications Unit Cutler, 941 49 (CA1 1991), ordered Defense, Army Air Force Exchange Serv., Dallas, Tex., 930 (1990); 652 (1990). 4 A divided panel States Fifth Circuit 1105 (1992). majority fell statutory exception Act. That if "required section 552 title [the (FOIA)]." 552a(b)(2). below observed certain enumerated exceptions, mandates full held agencies. Appeals, one exceptions— provision exempting coverage privacy," 552(b)(6) (Exemption 6)—potentially 2d, 1109. applied, recognized light our 749 (1989), Courts had disclosure.3 Rejecting view, however, reasoned Committee "has absolutely say about. . situation arises initially statute employed secondarily." 1113. cases, ruled "it proper interests generates request." Id., 1115. Applying approach, weighty identified advanced "would privacy." 1116. majority's addresses; turn, therefore, forbid orders binding. Ibid. dissenting judge controlled barred disclosing 1116-1119 (Garza, dissenting). 7 We certiorari, 507 1003 (1993), resolve conflict among concerning II 8 Like begin governs labor-management relations service. Consistent congressional finding "labor organizations interest," 7101(a), accord recognition elected unit. 7111(a). An represent fairly unit, regardless choose members. 7114(a)(1). also imposes duty negotiate good faith arriving agreement. 7114(a)(4). 9 To fulfill good-faith obligation, inter alia, "furnish involved, authorized representative, upon law, data. (B) reasonably available discussion, understanding, negotiation subjects bargaining." 7114(b)(4)(B) (emphasis added). has determined unit "necessary" process through them, communicate effectively otherwise possible. See Portsmouth, A., 532 ("In environment, leisure thoughtful attention union's message workplace permit"); Farmers Home Admin. Finance Office, 23 788, 796-797 (1986). determination, been upheld Appeals,4 before us. Nor there any dispute "reasonably available." "prohibited request. 10 Petitioners contend part: "No shall record contained system means communication person, another agency, except written by, prior consent of, individual whom pertains, [FOIA]." 552a(b)(2) 11 sought "records" covered broad unions.5 12 then, As previously, reflects "a general philosophy exempted delineated language." Rose, 425 352, 360-361 (1976) (internal quotation marks omitted). EPA Mink, 410 73, 79-80 (1973). Thus, while "disclosure, secrecy, dominant objective [FOIA]," number exemptions statute's reach. 361. potentially applicable 6, apply "personnel medical similar 552(b)(6). 13 although somewhat convoluted path cross-references, resolution depends discrete inquiry: [the] privacy" guidance answering question, look (1989). 14 involved addressed Bureau Investigation "rap sheets" individuals. deciding FBI contents rap sheets, reaffirmed First, exemption, degree "unwarranted," [e]xemption protect." 776. 372. 15 Second, "public disclosure" "core FOIA," "contribut[ing] activities government." Comm., 775 elaborated point length: 16 "[FOIA's] `full language' indeed focuses government to. Official sheds agency's performance falls squarely purpose. purpose, fostered citizens accumulated various governmental reveals own conduct." S., 773 (quoting 360-361) (other internal citations 17 372 cases "require individual's preservation [FOIA] open scrutiny") 18 Third, "whether made." 771. "Congress `clearly intended' `to member much [in particular document],'" ibid. NLRB Sears, Roebuck & Co., 421 132, 149 (1975)), involving claims privilege, identity requesting party bearing merits his her request," 771.6 III 19 followed can weigh nondisclosure analysis—the "she[d] duties" let know "what to." omitted; emphasis deleted). 20 might employees, Indeed, Even "[r]elease meaningful way scrutiny." 21 Apparently realizing conclusion follows ineluctably tenets embraced Committee, argue largely inapposite here dealt whereas implicated incidentally chain cross-references. circumstance, respondents, three statutes representational duties, import If so, confident conclude favoring 22 decline accept ambitious invitation rewrite disregard Committee. not, suggested, merely "borro[w] calculus purpose." Rather, allows law." suggest read exception, found itself. could enacted Act's purposes, so. absence provision, rely No-where, FOIA.7 equal, qualified, Cf. 771-772. Treasury, Financial Management 884 1446 (CADC 1989), cert. denied, 493 1055 (1990), then-Judge Ginsburg cogently explained why reject argument: 24 "The cross-reference 7114(b)(4)—`to law'—picks unmodified; shelters absent person [FOIA]. 25 "Once placed wholly domain, stands better public. True, identifying communicating persons accommodated Statute]. facilitation ultimately unavailing, `falls outside ambit serve,' i. e., advancing `public operation government.'" 1457 775). 26 Against virtually nonexistent disclosure, State Ray, 502 164, 173-177 (1991); very slight suffice outweigh exact quantification interest. enough present observe insubstantial. 27 true often publicly sources directories voter registration lists, "[i]n organized society, few facts time divulged another." 763. protected "encompass[es] control person." controlling dissemination regarding matters dissolve simply form. Here, nonunion who decided representative. n. 5, supra. Perhaps individuals failed join represents due lack familiarity services. Others opposed unionism practical ideological grounds. non-trivial disclosure.8 28 Many people want disturbed work-related matters. Employees lessen chance unwanted contacts revealing direct union/ facilitated limited mailings, preventing least unsolicited, mail reaching homes. reluctant disparage home, accorded consideration Constitution, laws, traditions. Rowan Post Office Dept., 397 728, 737 (1970); Olmstead States, 277 438, 478 (1928) (Brandeis, Moreover, parties, commercial advertisers solicitors, same access address lists see 496, 499, far insignificant. 29 out-weighs thus, IV 30 Respondents untoward effects. without unable with, effectively, employees. Such result, believe, thwarts explicitly See, e. g., 7101(a) (congressional interest"). According illogical believe interpreted manner hinders effectuation motivating 31 Respondents, place undue perceive impulses neglect language play limitations Speculation ultimate goals inappropriate here; plainly states "by By disallowing construe, Connecticut Nat. Bank Germain, 503 249, 253 (1992) ("We stated again courts presume legislature says there"). 32 fear agencies, acting records, disciplinary reports appraisals, presented it. 33 creates unnecessary unintended disparity between While employers Board,9 claim now needlessly obtaining despite indication result. 1457-1461 (R. Ginsburg, concurring). question matter, law parallel relevance here, unlike enjoy protection prohibition leaves Sedima, Imrex 473 479, 499 (1985). V 34 foregoing reasons, 35 So ordered. Notes: Rossie Alston, Jr., Right Work Legal Defense Foundation, Inc., amicus curiae urging reversal. Gregory O'Duden Elaine Kaplan Treasury Union affirmance. Local 1657 Food Commercial Workers composed Navy CBC Gulfport, Mississippi. 1345 AFL-CIO, world-wide Exchange, headquartered Texas Construction Battalion Center, Mississippi, See,e. FLRA, 348 (CA7 1992); Veterans Affairs, 958 (CA2 1991); 984 370, 373 (CA10 1993); 507-508. written-consent already those nonmembers them. disputed able contact ask effect, currently possess: revealed note asked potential applicability "routine use" exception. 552a(b)(3). solely fall Our inReporters turned 7(C) sheets." pertinent "[FOIA] (7) compiled production (C) expected 552(b)(7)(C). When discussed text, "[t]he maintaining obscurity rap-sheet always high," FOIA-based nadir" third parties citizens, given shed officials. 780. categorical matter excepted 7(C). protective 6: former applies "could constitute" latter unwarranted." Contrary below, 1113, focus today import. Exemptions differ magnitude override respective exemptions. Part III, infra, dispositive issue identification balance, making cases. 164 (1991) applying Committee). regard, seeDepartment 512 ("Nowhere [Labor Statute] indicate modified. Nowhere find qualification integrated FOIA"); 1453 ("Privacy b(2) speaks engage sort imaginative reconstruction introduce values process"). "employees addresses." Brief Respondent 41 (citingDepartment 515, (1990)). considered reached conclusion, differed characterization implicated. 977 545, 549 (CA11 1992) ("important" interest); 966 747, 759 (CA3 (en banc) ("minimal" ("general interest" address); ("significant" interest). Associated Gen. Contractors Cal., 633 766, (CA9 1980), 452 915 (1981); Pearl Bookbinding 517 1108, 1113 1975). 36 concurring. I relationship exceptions limited, notes, here. ante, 494, 5. 38 judgment. 39 Before every opposing announces today: uniformly enforced, challenges, (Authority) directing representative.1 judgments, deferred expert determination promoting federal-sector bargaining—the Statute).2 40 interposed reasoned, (FOIA) so requires, 552a(b)(2), asserted 495, tipped decisively favor promotion bargaining; changed underlies prodisclosure decisions. adopted restrictive definition disclosure," holding circumscribed purpose": "open[ing] scrutiny" 774-776 observes today, advance 497. guide, traverses "convoluted cross-references," journey ends impermissible.3 42 convincingly demonstrates unmodified, came instructed precedent. Mgmt. Service, 1446, 1989) (concurring opinion), quoted 499-500. seemed me then seems now, chart journey's end. 1457-1461. 43 recognized, enacting unquestionably strengthen unions." Alcohol, Tobacco Firearms 464 89, 107 (1983). surely doubtful bolstering unions, aimed deny private-sector counterparts routinely receive. Prudential Ins. Co. Am. NLRB, 412 77 (CA2), 396 928 (1969); WymanGordon 394 (1969) (upholding Board requiring employer election). similarly appraised relatively modest,4 trump Legislature's firmly declared bargaining. agree 498-499, rule yielding anomalies indubitably commanded FOIA.5 44 purpose" limitation language. requester show first instance alone Instead, "[a]n `unless records] with-held nine listed 552(b).' " Tax Analysts, 492 136, 150-151 quoting Julian, 486 1, (1988). example, compilations district tax decisions publishers Notes, weekly magazine. notably "ad[d] knowledge operations." 156-157 (Blackmun, dissenting) (required "adds whatsoever operations"). 45 Just confronts obstacle outset, appears text exemption. withhold fully consistent "warranted," pre-Reporters even unrelated informing operations. Courts, us, deemed specifically Statute—the 46 reconcilable main 496. serves check selection requesters, reviewing courts, according idiosyncratic estimations request's requester's worthiness. hand, importance selected single entity—the representative—as assert Allowing distinguish basis assert, Resale Services Support 1490, 1495 (cautioning "confus[ing] requester"). 47 am mindful, solidly approved my colleagues, mindful pull precedent strongest Burnet Coronado Oil Gas 285 393, 406 (1932) dissenting); Di Santo Pennsylvania, 273 34, (1927) concur recognizing today's denies accessible disparity." Ante, 503. SeeDepartment 840 1131 (CA3), dism'd, 488 881 (1988); Force, Scott Base 838 229 (CA7), 880 Agriculture 836 1139 (CA8 1988), vacated remanded, 1025 (1989); Health Human 833 1129 (CA4 1987), Govt. 1760 786 554 1986) (requiring disclosure). ("labor interest"); (agency "necessary bargaining," law") reach 552a(b)(3), justify Seeante, secure empowers instance, determine uses warrant classification "routine," ordinarily defer assessments order. But cf. Postal Assn. Letter Carriers, 3d 138, 143 1993) (opinion Silberman, J.) (suggesting obligations compel publish routine use notice accommodate Act"). CompareFLRA Ships Parts Control 1496 ("minimal"); 503, 511 ("more de minimis"); 49, 56 1991) ("modest"); 229, 232 (CA7) ("minuscule"), 1139, 1143 1988) ("modest"), 554, 556 ("not particularly compelling"), Pensacola ("important"). result shielding 7(C), 552(b)(7)(C), scattered bits criminal 1460 B. concurring) ("privacy threatened [to union] bare [of employees] pales comparison [public] sheet").

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