Document: 445 U.S. 136 100 S.Ct. 960 63 L.Ed.2d 267 Henry A. KISSINGER, Petitioner,v.REPORTERS COMMITTEE FOR FREEDOM OF THE PRESS et al. REPORTERS al., Petitioners, v. KISSINGER. Nos. 78-1088, 78-1217. Argued Oct. 31, 1979. Decided March 3, 1980. Syllabus Kissinger served as an Assistant to the President for National Security Affairs from 1969 1975 and Secretary of State 1973 1977. Throughout these periods, his secretaries monitored telephone conversations recorded their contents either by shorthand or on tape. The stenographic notes tapes were used prepare summaries sometimes verbatim transcripts (hereafter notes). In 1976, after had been moved Kissinger's office in Department a private estate New York, he donated them Library Congress, subject agreement restricting public access specified period, they transported Library. Three requests made under Freedom Information Act (FOIA): (1) request newspaper columnist (Safire), at time when still located office, any covering certain dates which Safire's name appeared discussed information "leaks" with White House officials; (2) Military Audit Project, transferred all while was State; (3) about same Reporters Committee Press others both Presidential State. denied first ground that requested therefore not agency records FOIA disclosure. second third grounds deposit Congress prior terminated Department's custody control. During this period no longer State, refused Government Archivist's return notes. Suits filed various requesters against Kissinger, Department, seeking enforcement declaratory judgment unlawfully removed being improperly withheld. District Court ruled plaintiffs' favor but relief Assistant, finding former "agency records" disclosure FOIA, wrongfully violation Federal Records Disposal Act. An order entered requiring determine are exempt provide required materials plaintiffs. Appeals affirmed. Held: 1. authority transfer notes, including those behest named Pp. 146-155. (a) No provision 1950, establishes management program federal agencies, complementary Act, provides exclusive means record disposal, expressly confers right action parties nor can such be implied. language Acts merely "proscribe conduct" does "create alter civil liabilities," Transamerica Mortgage Advisors, Inc. Lewis, 444 11, 19, 242, 247, 62 146, also administrative remedies violations Moreover, legislative history confirms congressional silence purposeful, indicating purpose benefit solely agencies themselves whole. Thus, regardless whether violated Acts, has vested courts jurisdiction adjudicate question upon suit party, responsibility authorities. 147-150. (b) Nor furnish intent permit actions recover custody. Under is dependent showing "improperly" "withheld" records." Here, covered agency, within meaning since did mean withholds document agency's possession filing request, case having neither control necessary enable it withhold. And failure sue party obtain withholding This conclusion prerequisite reinforced examination Act's purposes, apparent never intended, enacted displace statutory scheme embodied providing safeguard wrongful removal well retrieve records. 150-154. (c) circumstances where documents donee holding claim right, cannot said have received, and, therefore, withhold records, indispensable liability FOIA. 154-155. 2. sought While makes "Executive Office President" clear Office" include President. acting capacity made. 155-157. 191 U.S.App.D.C. 213, 589 F.2d 1116, affirmed part reversed part. David Ginsburg, Washington, D. C., Kissinger. William H. Alsup, Parties. Dobrovir, Project. Robert M. Sussman, Press. Mr. Justice REHNQUIST delivered opinion Court. 1 (FOIA) vests district enjoin production withheld complainant." 5 U.S.C. § 552(a)(4)(B). We hold today even if "agency," received "improperly withhold" its refusal institute retrieval action. When demonstrated standards established 2 * litigation arises out transcriptions petitioner conversations. questions presented petition necessitate thorough review facts. 3 Nixon Ford administrations eight years. He assumed position January 1969. September 1973, appointed retained advisory until November 1975. After resignation latter position, continued serve 20, service, generally detailed summaries, transcripts, conversations.1 Since conversations, official business personal matters. prepared electronic recording throughout entire tenure service stored files. 4 On October 29, arranged move York Nelson Rockefeller. Before removing consult Foreign Document Reference Center (FADRC), center responsible implementing maintenance disposal program. Archives Service (NARS), branch General Services Administration (GSA) preservation Government. obtained Legal Adviser however, advising him papers would free take left office.2 effected physical into two agreements deeding papers. agreement, dated 12, deeded United States, care one collection included collection. terms obligating comply restrictions inclusion respect access. consist "copies government there original copy files." It provided must "approved Collection" "authorized officials." 6 Public collection, deed, will begin 25 years death, whichever later. Until time, restricted employees who jointly approved Kissinger; persons written permission committee will. research assistants appropriate security clearance retain unrestricted 7 executed, formulated procedures Congress. Employees reviewed copies belonging containing classified information. donation process, sign Standard Separation Statement affirming "surrendered officials . material administratively controlled furnished during course [Government] employment developed consequence thereof, diaries, memorandums other nature. ." 8 December 24, consisting incorporated reference conditions agreement. addition, permitted only consent, question. 9 28, directly Rockefeller estate. Thus before Several weeks Library, aides extract portions files Council. Pursuant instructions Adviser, aide extracts, "any significant policy decisions otherwise reflected B 10 separate form basis litigation. All three premises Department. Safire, Times columnist, 14, 1976. Safire produce between 21, 1969, February 1971, officials. letter reasoned disclosure.3 11 28 Project (MAP) publicly announced gift States placement MAP Adviser. 18, 1977, grounds. First, found Second, denial appeal. 12 13, (RCFP), American Historical Association, Political Science number journalists (collectively referred RCFP requesters). reasons given requesters. 13 taken some seek recovery processing. 4, Archivist wrote requesting inspect so could remove analyzed issued memorandum concluding long extracts contained complied regulations. concluded inspection suggested compromise respecting privacy secretarial discourage creation historical instance. replied Archivist, declining 14 renewed With enclosed law Counsel GSA might rather than entitled 44 §§ 2901-2909, 3101-3107; 3301-3314 (1976 ed. Supp. II). respond request. C 15 Proceedings Columbia commenced 8, instituted FIOA, requests. similar suit. Both suits defendants. plaintiffs declaring Plaintiffs ultimate court require directions process 16 Cross-motions summary Judge produced Special obtaining approval Administrator Services. recognized "agency" Nevertheless, held invoke equitable powers "to appears unlikely." 17 mistaken assumption withdrawn summaries. 18 appealed lower judgment. Appeals, without discussion, trial ordering need produced. withdrawn, considerations supported nonproduction: cover advisers "who close House"; relocation bring responsibilities FOIA; fact may reflect affairs NSC, apply, absence directed agency. 19 certiorari Appeals' determination thereby permitting cross-petition court's denying transcribed granted petitions, 441 904, 99 1990, 60 372, we now affirm reverse II 20 address issue Kissinger—whether possessed portion premised exercise findings 3303. not, do decide removed, assuming affirmative answer each questions, relief. 21 be, course, conferred impose remedy. Two schemes relevant inquiry. contemplated itself justify remedy imposed documents. alternative, sustained authorized 22 2901 seq., authorizes "head agency" establish "records program" define extent "appropriate preservation" requires adequate documentation policies retained. disposal. 3314. 23 once achieves status "record" defined alienated disposed consent Services, delegated matters States. 3303, 3303a, 3308-3314 II); GSA, Delegations Authority Manual, ADM P. 5450.39A. "records" reach, then violate transferring himself assume arguendo purposes opinion. 24 But improper head 3106 notify Attorney determines "has reason believe" obligated assist actions. 2905. At administrators, belief Despite 3106. 26 Plaintiff effectively enforce requirements parties. believe 27 spent too many pages identifying factors uncovering imply cause belabor topic here.4 Our most recent pronouncement subject, 146 (1979), readily disposes "proscribes liabilities." Id., S.Ct., 247. duties imposes, implicating our "an elemental canon construction statute particular remedies, chary reading it." Ibid. Finally, detract inference drawn silence, purposeful. reveals parties, Senate Report 1950 focus. S.Rep.No.2140, 81st Cong., 2d Sess., (1950), U.S.Code Cong.Serv.1950, pp. 3547, 3550. states: 29 "It emphasize come existence, should so, fill cabinets occupy floor space, satisfy archival needs future generations, executive organization creates them. There danger simple, self-evident lost lack emphasis. measure effective usefulness executives accomplishing substantive organization. [The] interest establishment useful system [the executive] available 30 devising safeguards unauthorized opted enforcement. See Commission Organization Executive Branch Government, Task Force Management (1949). party. That authorities.5 31 plaintiff contend though contemplate action, nevertheless supplies what missing Acts—congressional are, unable read supplying intent. 32 represents carefully balanced rights obligations designed foster greater existed enactment. ensure met. 552(a)(4)(B) "improperly"; "withheld"; Judicial devise invoked, jurisdictional grant 552, contravened components obligation. find unnecessary conclude agency—here Department—has full contours prohibited "withholding." decide, case, 33 looking intent, quite naturally start usual word "withhold" itself. us "hold" "withhold." act described presupposes actor's item A resort legal simply conduct subsumed verb 34 purport word. structure indicates sense. 35 sources suggest triggering debates, ensuring "access servants." (Emphasis added.) 112 Cong.Rec. 13652 (1966), reprinted Source Book, S.Doc. No. 93-82, p. 69 (1974) (remarks Rep. Monagan) (hereinafter Book I). 36 Following FOIA's enactment 1966, guidelines use departments complying new statute. state 37 "refers, [It] imposes obligation compile procure response request." General's Memorandum Section Administrative Procedure 23-24 (June 1967), I, 222-223. 38 Most considered disclose chosen control.6 NLRB Robbins Tire & Rubber Co., 437 214, 221, 98 2311, 2316, 57 159 (1978), describing reaching agencies. 39 obligate create documents; obligates created retained.7 settled decision actually deprives it. Sears, Roebuck 421 132, 161-162, 95 1504, 1521-1522, (1975); Renegotiation Board Grumman Aircraft Engineering Corp., 168, 192, 1491, (1975). 40 If somewhat difficult why escaped possession, endeavored recover. little effort justified, effect seems different created, discarded.8 41 procedural provisions particular, nature intended normally days unless "unusual circumstances" 552(a)(6)(A), (B). "the search collect field facilities establishments processing exception searching collecting certainly expected commence lawsuits requested, particularly seen extension allowable, days. Either operating waged won days, file 42 similarly strong expression expectations emerges 552(a)(4)(A) costs incurred section reduce burdens fees "direct costs" "document duplication." allowed incurred. identified costs, thus burdens, "search" "duplication." 1974 amendments emphasized extensive services fulfilling S.Rep.No.93-854, (1974), Operations Judiciary, Amendments 1974: 94th 1st 164 (Joint Comm. Print 1975) additional conducting search, clearly allocate cost requester. doubtful efforts documents, authorize assessment requester endeavor. 43 result buttressed Bannercraft Clothing 415 1, 94 1028, 123 supra, demonstrating reluctance construe silently departing longstanding practice. Bannercraft, traditional adjudicating historic practice individual pursuant subpoena possession. Amey Long, East 473, 482, 103 Eng.Rep. 653, 657 (K.B.1808). "withholding" Congress.9 through refused. facts make donee, right. circumstances, received. III 45 raises submitted For reason, rest resolution As outlined above, prohibits 46 limited category appeared; Alexander Haig, John Mitchell, Richard Nixon, J. Edgar Hoover, FBI. 47 render 552(e). unambiguous, explaining Conference President's immediate staff units whose sole function advise term H.R.Conf.Rep.No.93-1380, Sourcebook II, 232. serving 48 argued adviser related Council H.R.Rep.No.93-876, Cong. Admin.News 1974, 6267, 128, applies. which, words requesters, "relate to" become To discussions concerning leaks threatened internal secrecy policymaking, acted adviser, only. 49 conclusion. mention relating NSC. contrary, see office. appeal again suggesting NSC adequately identify sought. 552(a)(3)(A). describe way put notice refer 552(a)(6)(B)(iii). Therefore, violates refusing another failing 50 records," acquired physically decline location renders time. They generated files, purpose. mere confer record" books, speeches, memorabilia discussion analysis correctly resolved Forsham Harris, 169, 978, 293 (1980). 51 Accordingly, compelling manuscripts 52 ordered. 53 MARSHALL took consideration cases. 54 BLACKMUN 55 BRENNAN, concurring dissenting 56 Today's explores hitherto uncharted territory complicated scheme. I agree me Court's crabbed interpretation "improper withholding" (FOIA). am uncertainty standard. although reached my Brother Stevens strikes workable present, write separately articulate ideas problem. abstract matter, concur view reach conditioned legality Acts. seq.; 3301 seq These fairly comprehensive management, element regulating enforcing standards. "legality" is, practical sense, partly matter discretion. Conceptually, strange import discretionary factor govern surprising fail mesh: evidently toward fostering interests, definitely general public. Consequently, promote interests concerns irrelevant FOIA.1 58 Although neatly interpolated company concludes more dead letter, necessarily incorporate restraint beyond Even implies—as think failed steps deliberately evade Ante, 155, n. 9. Beyond minimal rule, plainly unacceptable routing aimed frustrating moving outside unseemly haste. 59 Indeed, go further. decisionmaking, 188, 988, (BRENNAN, J., dissenting), concomitant of, over, records.2 But, resolve, difficulty draw line. hardly prevented surrendering requesters—so broad rule swamp paper, seem incompatible goals S. 2140, (1950). Perhaps test account importance specific records; consider length held, frequency type. elements test, expose how ill-suited adequately. resources fashion retention comports objectives hope soon problem, currently us. already passed control.3 analytically satisfying standard determining retained, resolve approach practicable. My Stevens' fits prescription. turning recognized, conceptually problematic, statutes formulate criteria unduly burdensome carry imprimatur. 61 STEVENS' issue, dissent Part STEVENS, recognizes, prevail 'improperly'; 'withheld'; 'agency records.' " 150. assumes, deciding, "withheld." states, agree, goes on, equate "custody" "control" inapplicable Ibid.1 64 compelled plain statute; moreover, wholly inconsistent underlying exempts scrutiny whatsoever incentive outgoing potentially embarrassing frustrate incentive, contrary case,2 prompts dissent. 65 judgment, occurs whenever declines possess end inquiry, "improper" view, correct confront following order: records"? because agency? improper? 66 Everyone Dr. conversations3 definitions set forth (FRA). disagree, proper application case. argue FRA 3301. hand, argues dispose takes intermediate arguing records.4 67 accept argument noted, regular business, work product personnel assets, maintained regularly circulated presumably making day-to-day behalf employee App. 248a. none remand necessary, suggests, least fell Department.5 68 regain deemed stated outset, concepts equated much narrower concept possession.6 applied purview continues refuses demand, returned, possession.7 return8 constituted 70 "improper." depends explanation attempt reasonable, improper. example, inaction know retrieving engage prolonged searches proceedings yield appreciable benefits 71 advance reasonable act, presumption motivated desire shield scrutiny.9 believed valuable own them, withholding. 72 event, By filed, substantial doubting inasmuch rendered probably returned screening.10 Because very nature, believing that, shortly expiration raised avoid arguable views 73 disposition issues premature, however. Once began, changed contended inspecting began sifting yet completed handed down decision. informed documents' value "improper," premature. give opportunity finish Tapes always destroyed immediately summarized transcribed. Adviser's regulation retiring "explicitly designated origin receipt." FAM 417.1(a) (1974). decision, contending virtue denied. Touche Ross Co. Redington, 442 560, 2479, 82 (1979); Cannon University Chicago, 677, 1946, 560 (1979). complaining administrators breached duty brought here. 704, 701(a)(2), 706(1). Nolen Rumsfeld, 535 890, 891 (CA5 1976) (suit "seeking Act"), cert. denied, 429 1104, 97 1133, 555 (1977); Nichols 325 F.Supp. 130, 137 (Kan.1971), aff'd, 460 671 (CA10) ("the [the] agency"), 409 966, 93 268, 232 (1972); Ciba-Geigy Corp. Mathews, 428 523, 531 (SDNY 1977) ("[T]he written"). record-creating regard indexing 552(a)(2). relieves observation here gauged temporal governed power, Jurney MacCracken, 294 125, 375, 79 L.Ed. 802 (1935), statutes. Fed.Rules Civ.Proc. 34, 45. displaced event shown purposefully routed circumvent express filed. comport formal pending notion (1975), compel opinions required. compels citizens, duplicates id., 191-192, 1504. What mandate exposure explanations memorialize; inferred contradicting principle entail litigating suggests. Rather, joined Cf. 18-20, 1037-1039, states "[i]n withhold." 150-151. motive reaches lessen requesters' Many, all, Also, contain purely 552(b)(1) (b)(6). later permanently oral "[d]ecisions, commitments, significance." 432.2-1 extracted pertaining permanent remain evidence However, saw properly elsewhere, became "non-record materials" permission. (The concedes nonrecord possession; relinquished.) believes degree duplication determined decided. Government's despite existence Brief Parties 11. subpoenas instructive. ante, 154. Rule Rules Civil Procedure, "possession, control." applies duces tecum 45, C. Wright Miller, Practice 2454, 425 (1971). construing rejected narrow physical-possession focusing instead subpoenaed See, e. g., International Business Machines F.R.D. 88, 91 1976); Buckley Vidal, 271, 274 1970); 2210 (1970). involved compliance discovery doubt just served. rejected, becomes argue, relinquish Administration. GSA's needed "transaction current business" "sufficient administrative, legal, research, warrant further Government." 3303a If, converted relinquishing assure over unlawful theory. several 99a-116a. requests, demonstrate recognizes situations suggests strict "physical-possession" "displaced" suggestion comfort beneficiaries For, sufficient rare indeed ordinary citizen overcome proof motivation. invite subjective motivation flood paper threatens engulf today's bureaucracy. Focusing attention reacquiring employee's place, preferable eliminating supervisory agencies' programs. 2904, 2906, 3102, 3302, authoritative impartial technical constitutes counsel, removed.

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