Legal Document

492 U.S. 136 109 S.Ct. 2841 106 L.Ed.2d 112 UNITED STATES DEPARTMENT OF JUSTICE, Petitionerv.TAX ANALYSTS. No. 88-782. Argued April 24, 1989. Decided June 23, Syllabus The Tax Division of the Department Justice (Department) represents Federal Government in nearly all civil tax cases district courts, courts appeals, and Claims Court, receives copies opinions orders issued by those such cases. Respondent publishes a weekly magazine containing summaries recent federal court decisions, supplemented full texts decisions microfiche form. also daily electronic data base that includes federal-court decisions. After denied its request under Freedom Information Act (FOIA) to make available final received certain period, respondent appealed administratively. While appeal was pending, agreed withdraw return for access Division's log Eventually, however, became frustrated with process obtaining from clerks initiated series new FOIA requests identified logs. these and, on administrative appeal, sustained denial. then filed suit District Court seeking compel provide it Division. granted Department's motion dismiss complaint, holding 5 U.S.C. § 552(a)(4)(B), which confers jurisdiction when "agency records" have been "improperly withheld," had not satisfied. reasoned sought withheld" because they were already their primary source, courts. Appeals reversed, purposes FOIA. Held: requires course litigating Pp. 142-155. (a) requested are records." obtained documents control made. 143-148. (b) When refused comply respondent's requests, "withheld" notwithstanding publicly original source as soon issued. 148-150. (c) "improperly" withheld despite public availability at since did fall within any enumerated exemptions FOIA's disclosure requirements. 552(a)(3) an agency need materials disclosed §§ 552(a)(1) (a)(2), latter subsections limited situations previously published or made itself. That may be partially governed other statutes, particular 28 1914, rules Judicial Conference United States, does entitle claim withheld, Congress has enacted no provision authorizing refuse disclose whose is mandated another statute. Moreover, decision GTE Sylvania, Inc. v. Consumers Union Inc., 445 375, 100 1194, 63 467, records enjoined even tho gh exemptions, meant invitation every case engage balancing, based factors, determine whether there unjustified denial information. invests neither authority nor tools determinations. 150-155. 269 U.S.App.D.C. 315, 845 F.2d 1060, affirmed. MARSHALL, J., delivered opinion REHNQUIST, C.J., BRENNAN, STEVENS, O'CONNOR, SCALIA, KENNEDY, JJ., joined. WHITE, concurred judgment. BLACKMUN, dissenting opinion, post, p. 156. Lawrence G. Wallace, Washington, D.C., petitioner. William A. Dobrovir, respondent. MARSHALL Court. 1 question presented (FOIA Act), 552 (1982 ed. Supp. V), States behalf Government. We hold does. 2 * Because party litigation, Copies staff attorneys. sent official files kept Department. 3 If won case, must prepare bill costs collect money judgment indicated decision. lost, decide file alter amend recommend filing appeal. involves only but Internal Revenue Service (IRS) Solicitor General. A division IRS reviews court's prepares recommendation should taken. accompanying circulated Division, formulates own recommendation, General, who light recommendations. General ultimately approves record joint appendix, both contain copy decision, transmittal appeals. taken, responsible ensuring payment court-ordered refund defending against attorney's fees. 4 Analysts magazine, Notes, reports legislative, judicial, regulatory developments field taxation readership largely composed attorneys, accountants, economists. As one regular features, Notes provides issues. To supplement Today, In late July 1979, asked earlier month.1 ground records. this decided f deral These logs list name date docket number, names counsel, nature disposition. 6 Since gaining logs, Analysts' practice examine noted therein 90 so around country participating most instances, procures reasonably promptly, method acquisition proven unsatisfactory approximately 25% time. Some ignore others respond slowly, sometimes after forwarded postage copying required 60 days, frequently fails obtain before appeals 7 Frustrated process, 1984. Beginning November 1984, continuing once week until May 1985, denial, instant Columbia, 8 withheld,"2 643 F.Supp. 740, 742 (1986). issue "already sources, Courts," id., 743, thus "on record." Id., 744. address 742. 9 Columbia Circuit reversed. 1060 (1988). It first held withheld." An ordinarily if proves nine set forth 552(b), noted, instance, "[n]o exemption applies opinions." 319, F.2d, 1064. contention observed "no . elsewhere, several assumed still produced unless expressly exempted Act." 321, 1066. 10 next acknowledged originated part covered FOIA, concluded nonetheless constituted discretion use sees fit, routinely uses performing duties, integrated into files. 323-324, 1068-1069. therefore remanded instructions enter order directing "to some reasonable form access" Analysts. 317, 1062. 11 certiorari, 488 1003, 781, 102 773 (1989), now affirm. II 12 enacting 23 years ago, " 'to open action scrutiny.' Reporters Committee Press, 489 749, 772, 1468, 1481, 103 774 quoting Air Force Rose, 425 352, 372, 96 1592, 1604, 48 (1976). requiring agencies adhere 'a general philosophy disclosure.' 360, S.Ct., 1599, S.Rep. 813, 89th Cong., 2nd Sess., (1965). believed philosophy, put practice, would help "ensure informed citizenry, vital functioning democratic society." NLRB Robbins Tire & Rubber Co., 437 214, 242, 98 2311, 2327, 57 159 (1978). 13 enjoin withholding production improperly 552(a)(4)(B). Under provision, "federal dependent showing (1) 'improperly' (2) 'withheld' (3) 'agency records.' Kissinger 136, 150, 960, 968, 267 (1980). Unless each criteria met, lacks devise remedies force requirements.3 14 three jurisdictional terms issue. Although defined legislative history, we do write clean slate. Nine Terms ago explicated meanings overlapping terms. supra; Forsham Harris, 169, 977, 293 (1980); 467 basis our analysis requests. 15 consider records," term elaborated upon Forsham. involved separate written telephone conversations Henry participated he served Assistant President National Security Affairs 1969 1975, Secretary State 1973 1977. Only requests—for specific during his tenure Adviser—raised At time request, stored Kissinger's office personal include Office definition "agency." U.S., 156, 971. further acquire status removed White House transported Department, FOIA-covered agency: 16 "We simply decline physical location notes renders them papers They generated never entered files, used purpose. mere could confer record' books, speeches, memorabilia subject FOIA." 157, 972. 17 Forsham, turn, raw formed study conducted private medical research organization. funded through grants, passed hands provided funding, instead possessed times recognized "[r]ecords nonagency certainly become well," 181, 985, fact financially supported transform material Nor agencies' right regulations change result. explained, "the obtained, merely obtained." 186, 987 (emphasis original; footnote omitted). 18 Two requirements emerge satisfied qualify First, "either create obtain" "as prerequisite becoming meaning 182, 985. avail themselves studies, trade journal reports, outside governmental organizations. See Chrysler Corp. Brown, 441 281, 292, 99 1705, 1712, 208 (1979). restrict internally frustrate Congress' desire reach information decision-making processes. 290, n. 10, 10. "The history abounds references acquired agency." 184, 986 added).4 19 Second, By mean come agency's possession legitimate conduct duties. This requirement accords teaching broad employee's possession, though physically located agency. suggested well, 183, where looked Records Disposal Act, 44 3301. definition, "all papers, maps, photographs, machine readable materials, documentary regardless characteristics, law connection transaction business ." Ibid. added).5 Furthermore, statement cover "information abstract." 185, 987.6 20 Applying here, conclude constitute undisputed like contends "agency" truism beside point. relevant "create[d] obtaine[d]" sought, organization itself FOIA.7 21 clearly controls seeks. Each referred evident compile recently placed obviously employees. counters retain modify released, argument, too, inquiry focuses power content receives. Agencies generally liberty receive parties. authorship-control sharply limit essentially themselves. result incompatible goal giving nonexempted carries out mandate. 22 urges us least originating concerned, 'prepared substantially relied decisionmaking.' Brief Petitioner 21, Berry Justice, 733 1343, 1349 (CA9 1984). limitation disposes argues, judges primarily eye toward decisionmaking. makes determination turn intent creator document Such mens rea nowhere found Act.8 discerning drafters often prove elusive endeavor, particularly created large number people whom difficult divine common intent. B "withheld," discussed Kissinger. case—for engaged while serving Adviser implicated term. initially Near end State, transferred residence Library Congress. Significantly, two Library. dispositive, concluding believe "withholds prior request. custody necessary enable withhold." 150-151, 968-969.9 accordingly institute retrieval e plained, "would read 'hold' 'withhold. refusal resort legal subsumed verb withhold.' 151, 969.10 24 construction "withholding" adopted readily encompasses There here On contrary, premises otherwise control, supra, 146-147, 6, supra. Thus, 25 counterargument that, inspected copied time, cannot said them. sufficient direct "original documents." 23. clear brief argument "improperly."11 But, extent relies former term, without merit. word "in usual sense." Kissinger, 969. grant undoubtedly sense Nothing counsels contorting beyond meaning. reject when, denying valid directs requester place available. C 26 left argue, finally, availability. "improperly," Act. explained reflected dissatisfaction Administrative Procedure 1002 (1964 ed.), "had failed desired decisionmaking, 'the major statutory excuse view.' 384, 1200, H.R.Rep. 1497, 2d (1966), U.S.Code Cong. Admin.News 1966, 2420. 3, "broad deciding what disclose, abused." 385, 1201. 27 intended curb apparently unbridled discretion" "clos[ing] 'loopholes allow deny public.' (citation omitted); see EPA Mink, 410 73, 79, 93 827, 832, 35 119 (1973). Toward end, formulated system mandatory person 552(a), "unless pursuant listed 552(b)." Julian, 486 1, 8, 108 1606, 1611, Consistent Act's disclosure, consistently given narrow compass. See, e.g., ibid.; FBI Abramson, 456 615, 630, 2054, 2063, 72 376 (1982). More important present purposes, "explicitly exclusive." FAA Administrator Robertson, 422 255, 262, 95 2140, 2146, 45 164 (1975); 361, 1599; 221, 2316; 832. O'CONNOR insulate product judicial tampering preserve emphasis admonishing 'availability public' limited, 'except specifically stated.' 642, 2070 (dissenting opinion) original), 552(c) (now codified 552(d)); 637, 5, 2067, 5; 1. follows exclusive 552(b) scheme withheld.12 contend protects claims nothing "improper" principal, 26. Depa tment advances somewhat related arguments support proposition. turn. 29 structure evinces avoid redundant disclosures. understanding survey provisions 552(a). subsection (a)(1), "currently publish Register" descriptions agency, statements functions, procedure. "make inspection copying" opinions, policy statements, manuals, promptly offered sale." (a)(3), covering records, (a)(1) (a)(2). Taken together, demonstrate inapplicability disclosed, materials. "A fortiori, request." 29. 30 too much. (a)(2) carefully thing say released; quite group released. aware redundancies might exist chose deal problem crafting categories be, effect, twice wished codify knew perfectly well how so. add detract comprehensive scheme, "balances, interests" Executive Branch disclosure. 80, 832 Congress, (1965).13 31 surprising, moreover, declined exempt place, engender intractable fights over precisely constitutes availability, precision. sense, comes can characterized agency—i.e., report testimony—may available, included testimony very be. Even agreement surely envision satisfying obligations handing requesters map sending scavenger expeditions throughout Nation. Without express indication text ngress result, adopt reading 32 rests States. contends, "more drawn govern public." 30. disagree. theory provide. do. statutes 552(b)(3), authorizes enact converse proposition—that statute—it free take step.14 33 last derived Consumer Products Safety Commission (b)'s exemptions. released court, unrelated lawsuit, doing circumstances, held, "[t]he concerns underlying [were] inapplicable, effort disclosure." 386, approved Commission's compliance injunction, noting "intended require commit contempt release documents. Indeed, viewed protectors public's know." 387, 1202. 34 correct asserting Sylvania departure self-contained slight best, serve critical independent FOIA—the enforcement order. emphasized, arose "a distinctly different context" than typical 1201, decides exercise." dispute akin No powerless alone, suggestion invites III 36 For reasons stated, files.15 Accordingly, 37 Affirmed. 38 WHITE concurs 39 dissenting. 40 examined again (FOIA), 552. determines litigation majority holds production. Court's analysis, I suppose, regarded fairly routine one. 41 join seems me language statute conclusive more important, reaches enacted. 42 Analysts, although nonprofit income commercial enterprise. sells supplies bases. now-successful impose cost taxpayers generally. elsewhere. But quicker convenient, less "frustrat[ing]," ante, 140, work search produce items apply respective clerks. 43 This, feel, almost gross misuse What demands, permits, adds whatsoever knowledge operations. That, thought, acknowledges, 142, real purpose spirit interpreted far. 178, 983, 242-243, 2326-2327, unwarrantedly, distinct lack enthusiasm case. If, surmise, today statute, perhaps will rectify forthwith give everyone concerned needed guidelines administration interpretation opaque Decisions Section 552(a)(4)(B) provides: "On complainant resides, principal business, situated, complainant. shall matter de novo, contents camera thereof section, burden sustain action." demonstrate, disprove, "withheld." (1965) ("Placing proof puts task justifying able explain it"); pp. 2418, 2426 (same); cf. Open Market Merrill, 443 340, 2800, 2808, 61 587 Title 552(b)(4), exempts secrets financial "obtained person," principle 184-185, 986-987; 183-184, 985-986 (noting "records" isposal 3301, Presidential 1978, 2201(2), encompassed "received" agency). (1980), prevent refusing among things, directories confident, type relatively infrequent. Common suggests housed library typically find easier repair nearest library, rather invoke mechanisms. Cf. 764, 1477, (1989) ("[I]f [requested materials] 'freely available,' reason access"). made, allows recoup processing discourage recourse 552(a)(4)(A). disputes loan "purposefully routed circumvent [an impending] request," "wrongfully individual filed." 155, 9, 971, leave consideration issues day. point implicit o 7, 1610, (1988), uncontroverted presentence prepared auspices turned Parole Commission, Nonpersonal restrictions. fact, bear subsequent 552(b)(3). replicates test "prerequisite triggering duties 969 added); 152-153, 969-970; 986, focus structure. With respect former, "obligate documents," "required retrieve escaped endeavored recover." 152, (citations structure, provisions, 552(a)(6)(B) gives 10-day extension normal period responding facilities brevity indicates expect lawsuits period. 153, 970. arguing "that affirmatively [the decisions] begin with." 319-320, 1064-1065 (1988) ori inal). outright, requesting alleging responded inadequate manner. 552(a)(6)(C); 166, 976 (STEVENS, concurring part). Appeals' conclusion satisfy duty making reference facility maintains. U.S.App.D.C., 321-322, 15, 1066-1067, 15. imposed properly additions (b). refuses indisputably albeit authorization contrast, complied obligations, longer charged unclear, 1914 permits cause unable procure fr m sources. 318, 1063, 7. remand affirmance. However, reasoning employed equally

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