Document: 447 U.S. 102 100 S.Ct. 2051 64 L.Ed.2d 766 CONSUMER PRODUCT SAFETY COMMISSION et al., Petitioners,v.GTE SYLVANIA, INC. al. No. 79-521. Argued April 14, 1980. Decided June 9, Syllabus Section 6(b)(1) of the Consumer Product Safety Act (CPSA) requires that, at least 30 days prior to "public disclosure any information" pertaining a consumer product obtained by Commission (Commission) pursuant its information-gathering authority, must notify manufacturer and provide it with summary information be disclosed, if is designated or described in such way as permit public ascertain readily manufacturer's identity; that given reasonable opportunity submit comments regarding information; "take steps assure" "accurate" "fair circumstances reasonably related effectuating purposes" CPSA. In instant case, Commission, upon receiving Freedom Information (FOIA) requests without complying § 6(b)(1), decided release certain accident reports had from respondent manufacturers were accompanied, for most part, claims confidentiality. The District Court permanently enjoined disclosing materials, rejecting contention applies only when affirmatively undertakes disclose but not merely complies request under FOIA. Appeals affirmed. Held: governs records Pp. 108-124. (a) Nothing 6(b)(1)'s language other provision CPSA, supports claim limited disclosures initiated FOIA being accurately characterized disclosure" within plain meaning 6(b)(1). Moreover, 6(b)(2), which contains specific exceptions requirements does include response an request. And 25(c) CPSA—designating notwithstanding they might exempted thus scope 6(a)(1), incorporates reference exemptions FOIA—specifically makes subject limitations 6(b) whether "affirmatively" released 108-110. (b) Neither legislative history CPSA enactment nor subsequent administrative interpretations warrant construing Commission's "affirmative" disclosures. 110-120. (c) Applicability precluded on alleged ground would unable comply time handling appeals refusals disclose. Such argument assumes limitations, Exemption 3 states apply matters are specifically another statute withheld manner leave no discretion issue, establishes particular criteria withholding refers types withheld. Here, sets forth sufficiently definite standards fall 3. 121-123. (d) requiring meeting will impose insurmountable burdens agency entirely speculative. increased imposed intended Congress striking appropriate balance between interests consumers need fairness accuracy respect disclosed undue properly addressed Congress, this Court. 123-124. 598 F.2d 790, Peter Buscemi, Washington, D. C., petitioners, pro hac vice, special Bernard G. Segal, Philadelphia, Pa., respondents. Mr. Justice REHNQUIST delivered opinion 1 question presented Act, 15 U.S.C. 2055(b)(1), Act. We granted certiorari review judgment Third Circuit because importance conflict Circuits.1 444 979, 479, 62 405. 2 * 1972, enacted (CPSA), 86 Stat. 1207, seq., order, inter alia, "to protect against unreasonable risks injury associated products" assist evaluating comparative safety products." §§ 2051(b)(1) (2). created carry out statutory purposes. 2053. powers authority collect disseminate information, 2054(a)(1), conduct research tests products, 2054(b)(1) (2), promulgate standards, 2056, ban hazardous 2057. 6 1212, 2055, regulates Commission. we deal here, before product, identity. information. take assure accurate If subsequently finds has made inaccurate misleading adversely reflects products practices, "publish retraction" "similar was . ."2 4 relevant facts set case earlier Term, GTE Sylvania, Inc. v. Consumers Union, 445 375, 1194, 63 467 (1980), restated detail. Briefly, respondents various reports, accompanied decided, after Union United States, Inc., Public Citizen's Health Research Group (the requesters), even those claimed confidential. Not surprisingly, lawsuits soon filed several Federal Courts. See supra, 378, n. 1, S.Ct., 1197, 1. 5 Delaware ultimately respondents' motion submitted well data compiled computer printout reports. 443 F.Supp. 1152 (1977).3 rejected public, It held applicable thereby falling FOIA, 552(b)(3). also found failed procedures case. Thus, concluded contrary F.Supp., 1162. 790 (1979). After thoroughly examining "Congress did intend press releases, news conferences, publication forms 'affirmative disclosure' Act." F.2d, 811. Rather, "the meant harmful effects through means, material broad powers. policies designed served section severely undermined, eviscerated, interpretation prevail." Id., 811-812. 7 Petitioners repeat their here safeguards own initiative carrying responsibilities When fashion, argue, explicitly implicitly represents believes true should rely it. Brief 10. releases request, contrast, obliged whatever materials possesses express implied statement documents extent reflect policy. 11. Although there some support petitioners' contained Conference Report four years section, see Part IV, infra, agree Appeals' determination "legislative history" sort cannot viewed controlling. II 8 begin familiar canon construction starting point interpreting itself. Absent clearly expressed intention contrary, ordinarily regarded conclusive. 9 terms connection therewith." (Emphasis added.) matter common usage term "public" understood including persons who requesters. A seem 6(b)(1).4 10 6(b)(2) 2055(b)(2), 6(b)(1).5 But list exclude could easily have done so listed exceptions. That aware relationship exhibited fact 6(a)(1) incorporated nine 552(b). consequently reluctant conclude Congress' failure unintentional. 11 Finally, 2074(c), further conclusion distinguish Commission.6 designates investigation do identify injured parties physicians, demonstration projects 6(a)(1). 25(c), however, 6(a)(2) 6(b), provides little basis accepting requests. III 12 next argue inapplicable despite statute. making argument, petitioners concede preenactment legislation directly address precise issue involved case." 33. They nonetheless maintain principal concern underlying adoption danger findings, first assuring disclosure. industry representatives concerned about harms resulting agency. establish concerns fashion.7 More importantly, full examination indicates purposes distinction 13 gave gather, analyze, vast amounts private granting adopted manufacturers' reputations damage arising improper gathered received House states: 14 "If act responsibly adequate basis, complete access responsibilities. Accordingly, committee built into bill recognizes doing recommended giving means gaining great otherwise available Government. Much relates trade secrets sensitive cost competitive written detailed relating acquires act." H.R.Rep.No.92-1153, p. 31 (1972).8 indication discloses explanatory whatsoever 16 "Before disseminating identifies labeler directed give comment proposed This procedure come forward consideration." 32 (emphasis added). 17 Nor contain suggestion As observed Appeals, "conferees' description instructive 'publicly information' mentioned almost same breath stating disclosed' exempt FOIA." 809.9 18 Further can versions bill.10 commenting provisions administration bill, H.R.8110, Representative Moss, chairman Subcommittee Commerce Finance, considering bills, stated: "I am sure subcommittee want examine carefully change Hearings, pt. 2, 300.11 operative information-disclosure 4(c) absent requirement publish comments, law 6(b). 8, supra. 19 finally both affirmative Department Health, Education, Welfare, drafted stated section-by-section analysis bill: 20 "Section Secretary's refusal required [FOIA], expressly prohibit his commercial secrets, illness revealing [the] identity victim. 21 "It require thirty notice respecting reveal identity." 188. 22 These reading present General Counsel Commerce, opposing Senate's less restrictive proposal wrote: 23 "[W]e believe interest attendant safeguards. manufacturers, right rebut false fair accurate." S.Rep.No.92-749, (1972) 24 fails read section. IV 25 contend construction. one sponsors bill. testimony congressional Oversight Subcommittee, then Chairman Richard O. Simpson explained interpreted Moss remarked: "As primary author acts, I inclined you." Regulatory Reform: Hearings Investigations Committee Interstate Foreign 94th Cong., 2d Sess., Vol. pp. 7-8 (1976). note added 29(e), 2078(e), Improvements 1976, joint operation new follows: 26 "The agency's conferees supersede (5 552(a)(3) (a)(6)). former while latter member H.R.Conf.Rep.No.94-1022, 27 (1976); U.S.Code Cong. & Admin.News, 993, 1029 added).12 weight attached these statements, oft-repeated warning views form inferring intent one." States Price, 361 304, 313, 80 326, 332, 334 (1960), quoted Philadelphia National Bank, 374 321, 348-349, 83 1715, 1733, 915 (1963).13 contemporaneous remarks single legislator controlling analyzing history. Chrysler Corp. Brown, 441 281, 311, 99 1705, 1722, 60 208 think either Moss' isolated remark post hoc entitled much here. 28 While sponsorship generally, he sponsor original provided governing Rather authored H.R.8157, than adopted.14 His reliable intention.15 29 An Committee, concluded, reveals persuasive position. 29(e) purport interpret deals solely agencies. 12, "[T]he conference context approving numerous extensive amendments Act; yet problem us enacting espoused H.R.Rep.No.94-325, 1st Sess. (1975). Senate version amending 29. [H.R.Conf.Rep.No.94-1022, 26.] debates amendment 29, mentioned. conferees' report debated. 122 Cong.Rec. 10,811 (House approval report); id., 11,585 (Senate approval) (1976)." 810-811. light background, far authoritative expression oft-quoted factors enunciated Skidmore Swift Co., 323 134, 140, 65 161, 164, 89 L.Ed. 124 (1944).16 For reasons, reject 1977 afforded degree deference necessary prevail 42 Fed.Reg. 54304 seq. (1977). presents narrow legal susceptible judicial resolution. situation been longstanding jurisdiction likely rely.17 V inconsistent "determine ten [an FOIA] request" requester "immediately" determination. 552(a)(6)(A)(i). resolve appeal filing appeal. 552(a)(6)(A)(ii). requirements. 33 Petitioners' procedural limitations. agencies, refuse requested falls 552(b)(3), 34 "specifically (other 552(b) title), (A) (B) withheld."18 35 Here grant (1) "accurate," (2) circumstances," (3) "reasonably [the CPSA]."19 therefore insoluble FOIA.20 VI 36 claim, state receives nearly 8,000 annually. problems controlled prove unbearable. Most our result compliance 37 foregoing 38 Affirmed. decision below, (1979), direct Pierce Stevens Chemical Comm'n, 585 1382 (CA2 1978). entirety, "(a)(1) shall deemed subsection 552, title 5, Code, protected public. "(2) All reported representative secret referred 1905 18, considered confidential except may officers employees proceeding authorize officer employee control duly authorized committees Congress. "(b)(1) Except paragraph subsection, therewith (unless health lesser period notice), shall, practicable, notify, to, each pertains, labeler, regard assure, thereof, ascertained accurate, practices manufacturer, distributor, retailer similar made, retraction Paragraph (except last sentence thereof) action (relating imminently products), cause violation prohibited acts), course concerning 2055. Earlier decisions 438 (1977) 404 352 discussed U.S., 377-378, exception 30-day where notice" suggests encompass exception, sense applied obligation rather Commission-initiated limit public." broadly disclosure." And, III, exceptions, example, "Subject sections 2055(a)(2) 2055(b) 2055(a)(1) title, chapter person treating him, consent identified, all projects, activities information." although out, vice president Electric James F. Young, cautioned dangers "[i]ssued dignity apparent imprimatur U. S. Government," Act: Finance 92d 3, 1065 (1971-1972) (hereinafter Hearings), statements more general safety. H. Falk, Electrical Manufacturers Association, "[n]o inaccurate, incomplete." 1197. prepared George P. Lamb, counsel Association Home Appliance Manufacturers, voiced following concern: "Authority carries responsibility injure company establishing standards-setting explicitly, many federal statutes, disseminated. derogatory refute H.R. 8110 accomplish this." 1237 enacted, traced 8110, (1971), introduced behalf administration. Senate, virtually identical provided: "(1) Secretary make him formulas, processes, costs, methods business, public; names identification ill consent. "(2)(A) subparagraph paragraph, therewith, Upon length lieu concurrently association appertain. of, distributor importer dealer "(B) Subparagraph (i) Attorney (or thereof product) 15, (ii) passed omitted safeguards, 49, 51 (1972), House, H.R.15003, administration's regard. (1972). H.R.15003 accepted became law. H.R.Conf.Rep.No.92-1593, publicly distributors identified duties. No 552(b), Code Act), 41. supported Broyhill, Broyhill legislation, "requires offer comment. legislation." 118 31381 observation H.R.8157. 300. "prescrib[e] conditions agencies State local authorities engaged health, safety, protection." 26, 1028. 90 510, provides: protection, copies officer, employee, agent included copy subsection; receive assurances satisfactory treated not, in— "(A) report, "which unless complied 6(b)." invoke maxim "Subsequent declaring construction." Red Lion Broadcasting Co. FCC, 395 367, 380-381, 1794, 1801, 371 (1969) (footnote omitted). With proceeded formally process. mere what obviously weighty. formal extremely enactment. sometimes relevant, because, Chief Marshall Fisher, Cranch 358, 386, 304 (1805): "Where mind labours discover design legislature, seizes every thing aid derived." Andrus Shell Oil 446 657, 666, 1932, 1938, 593 (1980). bear strong indicia reliability, passes memories fade person's perception change. useful, rarely override gleaned 19(d) H.R.8175, "When unfair advantage person, best adapted use, secret, determines 68-69. addition, never Committee. assert inconsistency scheme releasing themselves event, reach until met executive session October 6, 1975, 1152, 1155, (1977)—over six months two motions preliminary injunction fully briefed argued 1977—two brief (App. 7) responding requests, 370—that rules published. 54, arguable primarily litigation inspired. Cf. Davies Warehouse Bowles, 321 144, 156, 474, 481, 88 635 (1944). exemption amended 1976 5(b) Government Sunshine Pub.L.94-409, 1247. define statutes exempt" overrule Supreme Administrator, FAA Robertson, 422 255, 95 2140, 45 164 (1975), dealt 1104 Aviation 1958 (49 1504)." H.R.Conf.Rep.No.94-1441, Robertson 1104, vested Administration withhold fell eliminate nondisclosure possession. Operations amendment: "Believing misconceives (3), recommends referring gap endangering Atomic Energy 1954, 2161-2166, protection nuclear data. "Under amendment, affords Administrator cart blanche [sic ] pleases, ." H.R.Rep.No.94-880, (1976), 2183, 2205. "Any objection application, document Board grounds objection. Whenever order when, judgment, affect responsible classified accordance law: Provided, nothing Congress." 72 797, 49 1504. "promptly available" requesting them. Pub.L.90-23, 81 55. 1974, adopted. Pub.L.93-502, 1(c), 1562, 552(a)(6). Because since sound application

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