Document: 455 U.S. 345 102 S.Ct. 1103 71 L.Ed.2d 199 Malcolm BALDRIGE, Secretary of Commerce, et al., Petitioners,v.Peter SHAPIRO, Essex County Executive. William H. McNICHOLS, Jr., etc., Petitioners, v. the United States Department al. Nos. 80-1436, 80-1781. Argued Dec. 2, 1981. Decided Feb. 24, 1982. Syllabus These cases present question whether lists addresses collected and utilized by Bureau Census are exempt from disclosure either way civil discovery or Freedom Information Act (FOIA), under confidentiality provisions Act, 13 U.S.C. §§ 8 9. Section 8(b) allows Commerce to reveal statistical materials "which do not disclose information reported by, on behalf of, any particular respondent." 9(a) prohibits using furnished except for purposes making publication "whereby data establishment individual . can be identified"; it also examination reports "anyone other than sworn officers employees bureau agency thereof." The 1980 census indicated that areas County, N.J., Denver, Colo., among others, had lost population during 1970's. Both localities challenged count Bureau's local review procedures, asserting erroneously classified occupied dwellings as vacant seeking unsuccessfully obtain access a portion address used in conducting its their respective jurisdictions. In No. Executive filed suit Federal District Court compel FOIA master list, compiled initially commercial mailing postal checks, updated through direct responses questionnaires, canvassing personnel, some instances cross-check with 1970 data. held required requested information. court rejected contention constitute statutory exception within meaning Exemption 3 FOIA, which provides need made "specifically exempted statute" if statute affords no discretion disclosure, establishes criteria withholding data, refers types material withheld. Appeals affirmed. 80-1781, Denver officials Court, preliminary injunction require cooperation city verifying vacancy granted city's request contained registers. However, reversed, relying language Congress' intent protect Held: 1. 80-1436 is subject FOIA. Pp. 352-359. (a) To stimulate public necessary an accurate census—providing basis apportioning Representatives states Congress, serving important function allocation federal grants based population, providing Congress ultimately private sector—Congress has provided assurances individuals treated confidential. Title explicitly provide nondisclosure certain such Thus, qualify statutes 353-355. (b) unambiguous Act—focusing "information" "data" constitutes compilation—as well Act's legislative history, indicates contemplated raw individuals, just identity was confidential available disclosure. list sought part intended protected Act. And clear language, relevant municipalities will use only purposes. 355-359. 2. Nor 80-1781 Rules Civil Procedure. Under Rule 26(b)(1), privileged, may withheld even lawsuit essential plaintiff's claim. A privilege created statute, strong policy "privilege" Rules. 360-362. 3rd Cir., 636 F.2d 1210, reversed; 10th 644 844, Elliott Schulder, Washington, D. C., petitioners respondents David Ben-Asher, Orange, N. J., respondent 80-1436. George J. Cerrone, Chief Justice BURGER delivered opinion Court. 1 We certiorari determine 2 * Art. I, § cl. 3, Constitution, responsibility decennial rests Congress.1 delegated duty conduct census, 141; turn this Census. 21. enumeration conducted includes Newark, areas, This conveyed appropriate both Denver. procedures 10 working days receipt counts challenge accuracy data.2 procedures. proceeded theory vacant, BALDRIGE SHAPIRO (No. 80-1436) 4 New Jersey release "master address" register 5 552.3 listing addresses, householders' names, number housing units, type inquiry, and, where applicable, status unit. further pre- post-enumeration resisted arguing prohibit all pertaining including addresses. argued therefore could lawfully withhold pursuant does apply specifically statute. 552(b)(3). concluded began analysis noting favors unless falls exemptions. did "blanket confidentiality" materials. Rather, limitation "solely furtherance mission ensure against individual's response." App. Pet. Cert. 10a. noted seek relative but exclusively conjunction own program review. addition, authorized utilize county they observe limitations claim impeded goal complete enumeration. Finally, found derived questionnaires received, rather prior census. ordered make property county, proviso persons records secrecy.4 Third Circuit affirmed reasons stated 1a. Judgment order at 1210 (1980). B McNICHOLS 80-1781) 6 officials, Colorado cooperate data.5 rule injunction, instead focused entitled registers maintained Bureau. Denver's should have because without denied meaningful ability light what deemed constitutional rights involved, 9 denying right discovery. entered detailed information.6 7 Tenth reversed. 844 (1981). relied "express language" " 'emphatically expressed information.' Id., 845, quoting Seymour Barabba, 182 U.S.App.D.C. 185, 188, 559 806, 809 (1977). reasoned power immune neither nor implied covering case. indication constitutionally remedy must lie Congress. similar information, concluding privileged these disclosed 451 936, 101 2015, 68 323 (1981); 452 937, 3079, 69 951 II A. broad mandate open information.7 expressly recognizes, however, always interest consequently one nine exemptions defined 552(b). Baldrige Shapiro, twofold: first, 3; second, included protection 9(a). Although national mandated Constitution fulfills many valuable functions benefit country whole, initial purpose representatives Congress.8 today serves population. sector.9 11 submit responses, depends large cooperation. 8(b), specified limitations, "the [of Commerce] furnish copies tabulations ." confidentiality: 12 "Neither Secretary, officer employee thereof, may, section title— "(1) title supplied; "(2) whereby identified; 14 "(3) permit anyone thereof examine reports." 15 Sections No referred 3.10 Raw exemptions, extent C 16 various amici vigorously argue designed identities who data; reason, argue, identified. provisions, history plainly 17 begin first Watt Energy Action Educational Foundation, 454 151, 205, 70 309 (Emphasis added.) focus compilation. prohibited identified 18 each compiled. "by, of," respondent. By protecting revealed "on of" respondent, emphasized itself 19 makes concerned solely individuals. Since 1879 concern preserved. At time taker law take oath "not [to] schedules, lists, statements." Mar. 1879, ch. 195, 7, 20 Stat. 475, Apr. 20, 1880, 57, 21 75.11 As result questions asked 1880 1890 censuses, amended broaden protections. 1899, 419, 21, 30 1020. restricted Director revealed. governor state chief municipal government upon request, receive counted territory jurisdiction. 30, 1021. frequently cities complaining undercounts. For example, York City after allow count. House Committee Eleventh Census, Re-enumeration City, 51st Cong., 2d Sess. (1890). See Decennial 113-138. 1929 again June 18, 1929, 28, 11, 46 25. amendment gave regardless claimed beneficial effect extended 116. special municipalities. 1976 provision strengthened "to add privacy" prohibiting "reported S.Rep. 94-1256, pp. 3-4 (1976); U.S.Code Cong. & Admin.News 1976, p. 5466. H.R.Conf.Rep. 94-1719, (1976). prohibitions "material might respondent" extends "public entities," supra, 4, 5466, indicating requesting foregoing reveals congressional Subsequent action consistent interpretation. response undercounts 1960 1970, considered, rejected, proposals limited H.R. 8871, 95 1st (1977); Hearings 8871 before Subcommittee Population Post Office Service, 95th 22 data—the information—intended protected. "information responding taken censuses lists. then verified mailings enumerators go responding. See, e.g., Questionaire, Question H4 ("How living quarters, address?"). material, vacancies obtained neighbors others spoke followup enumerators. final 23 9(a)(1) permits supplied." There hundreds governments 50 were "monitors" Bureau.12 limiting "statistical" outside strict requirements handled secrecy.13 24 Because case those III 25 Procedure, encourage exchange litigants courts. Unlike grant disclosure.14 Procedure 26(b)(1) "relevant matter involved pending action" privileged. If exists, withheld, 26 It recognized statute.15 granting strictly construed so avoid construction would suppress otherwise competent evidence." St. Regis Paper Co. States, 368 208, 218, 82 289, 295, 240 (1961). central inquiry create requested.16 27 above, embody explicit preclude Disclosure undermine very One participation maintain confidence given disclosed. general public, whose underlying rationale been accumulated confidentiality. bar serve assuring confidence. discretion, vested authority "as shall Law direct."17 wisdom classifications us decide 180 years' experience process. 28 say suit. finding "privilege," shields despite demonstrated litigant. IV 29 hold requests rules, course, authorize executing obligation But until alters followed Accordingly judgment 31 ordered. Article provides: "Representatives Taxes apportioned several Union, according Numbers, determined adding whole Number free Persons, bound Service Term Years, excluding Indians taxed, three fifths Persons. actual Enumeration Years Meeting every subsequent ten Manner direct. Fourteenth Amendment provide: numbers, counting State, taxed." Sixteenth altered taxation apportionment regard Revised Local Review Program Booklet (Apr.1980), 22-48. 552(a)(4)(B), district complainant resides jurisdiction enjoin production improperly complainant." note passing there procedure. Jurisdiction invoked 1331, 1337, 1361, 2201, 2202, 552, 702, 704, 706, U.S.Const., 3. erroneous undercount, underrepresented deprived funds grant-in-aid programs distribute legislature districts Colo.Const., V, 48. originally temporary restraining keep offices. parties agreed offices close long kept (1) Government produce registers, described "Follow-up Address Registers" (FAR's), culled FAR's; (2) names identifying references eliminated; (3) secrecy; (4) adjustment census; (5) option accompany verify principle reiterated Weinberger Catholic Hawaii/Peace Education Project, 139, 197, 298 NLRB Robbins Tire Rubber Co., 437 214, 220, 98 2311, 2316, 57 159 (1978); EPA Mink, 410 73, 80, 93 827, 832, 35 119 (1973). enacted taxes states. ratification 1913 apportionment. Even takers, relatively small deal with, encountered difficulty taking Writings Washington 329 (J. Fitzpatrick, ed. 1939) ("Returns already tolerably estimate formed now appears we hardly reach four millions; thing our real numbers exceed, greatly, official returns them; religious scruples some, them give lists; fears foundation tax induced conceal diminished theirs, thro' indolence people, negligence Officers omitted"); Thomas Jefferson 229 (A. Lipscomb 1903) (Aug. 1791, letter Wm. Carmichael) ("I enclose you copy Making allowance omissions, know great, safely above millions"). varied computing benefits, drafting legislation, urban regional planning, business academic social studies. Use Data Assistance Programs, Ser. 95-16 (Committee Print Library 1978); Code Admin. News 5463. During debates James Madison importance beyond designated encouraged new "embrace subjects besides bare inhabitants." "This kind [Madison] observed, legislatures wished for; never country. plan pursued future opportunity marking progress society, distinguishing growth interest." Papers 8-9 (C. Hobson R. Rutland eds. 1981) (Debate Jan. 25, 1790). bill obtaining Mr. passed "was thrown out Senate waste trouble supplying idle people book." Letter Jefferson, id., 41. Respondent Shapiro dispute conclusion. Brief 8. clearly constituted specific exemption 1621, 85th Sess., (1958); 104 Cong.Rec. 6549-6550 (1958) (remarks Rep. Moss); 112 Rec. 13646 (1966) Olsen) ("information sources information" 3); H.R.Rep. 1497, 89th (1966); 1966, 2418; 122 24211 (1976)(remarks Reps. Abzug McCloskey). Concern early 1840 enumerator instructed "consider communications him performance [his] duty, confidential." Energy, Nuclear Proliferation Services Governmental Affairs, Census: An Analysis Review, 96th 113 (1980)(hereinafter Census). Scott, U.S.A. (1968). 1870 instructions emphatically "[a]ll disclosures confidential, hereafter mortality schedule. 114. 1909 revisions "[n]o July 1909, 36 (emphasis added). 1924, 43 31; 8, 23; 1947, 331, 61 458, Aug. 31, 1954, Pub.L. 740, 1013-1014; Oct. 15, 1962, 87-813, 76 922 (overriding decision (1961), report retained establishment). more see C. Kaplan T. Van Valey, Dept. '80: Continuing Factfinder Tradition 68-71 Recognition degree foreign nations. Canada, France, Germany, Great Britain, Italy, Japan, Netherlands, Sweden Laws Confidentiality Records Western Europe, 94th 1976). controversy over "vacant" "occupied" months lead interminable litigation impair Approximately lawsuits brought claiming undercount re Adjustment Litigation, 506 F.Supp. 648 (Jud.Pam.Mult.Lit. 1981); Carey Klutznick, 653 732 (CA2), cert. sub nom. Baldrige, 81-752. purposes, remains primary substitute Sears, Roebuck 421 132, 143, n. 10, 1504, 1512, 44 (1975); Renegotiation Bd. Bannercraft Clothing 415 1, 94 1028, 1040, 39 123 (1974). Most courts automatically Frankel SEC, 460 813, 818 (CA2 1972) (information party's exceeds Government's confidentiality). Toran, Actions: Discovery Rules, 49 Geo.Wash.L.Rev. 843, 848-854 Evidence 501 "[e]xcept witness [or] governed principles common interpreted reason experience." unlikely while checking figures speak supplied though able identify nonetheless appearance breached. times assure availability historians legitimate researchers. S. 3279, 10686, "Concerns about legislation raised soon apparent benefits gained easily offset loss credibility damage reputations citizens." 1976) (Foreword Sen. McGee, Chairperson).

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