Legal Document

502 U.S. 164 112 S.Ct. 541 116 L.Ed.2d 526 UNITED STATES DEPARTMENT OF STATE, Petitionerv.Michael D. RAY et al. No. 90-747. Argued Oct. 9, 1991. Decided Dec. 16, Syllabus In 1981, the Secretary of State obtained an assurance from Haitian Government that it would not subject to prosecution for illegal departure undocumented Haitians interdicted by United States and returned Haiti. Personnel petitioner Department monitored Haiti's compliance with conducting interviews a "representative sample" unsuccessful emigrants, most whom reported no harassment or after their return. During immigration proceedings, respondents, nationals attorney, sought prove were entitled political asylum in because who immigrate illegally face well-founded fear upon returning home. To disprove Government's assertion returnees have been prosecuted, respondents made Freedom Information Act (FOIA) requests copies petitioner's interview reports received, inter alia, 17 documents which names other identifying information had redacted. The District Court ordered produce redacted material, finding deletions authorized FOIA Exemption 6, exempts disclosure "personnel medical files similar constitute clearly unwarranted invasion personal privacy." Appeals affirmed. It found returnees' significant privacy interests—stemming respondents' intent use contact question Federal promise maintain confidentiality outweighed public interest learning whether is adequately monitoring its obligation honest when officials opine Haiti adhering assurance. court also concluded indirect benefit giving means locate provided value requiring disclosure. Held: Disclosure unredacted privacy. Pp. 171-182. (a) order determine has met burden justifying redaction, individual's right must be balanced against FOIA's basic policy opening agency action light scrutiny. Air Force v. Rose, 425 352, 372, 96 1592, 1604, 48 11. 173-175. (b) at stake this case more substantial than recognized. summaries containing details about particular returnees, while de minimis identities are unknown, linked individuals. addition, publicly identify possibly subjecting them families embarrassment social community relationships retaliatory might result renewed aborted attempt emigrate. lower gave insufficient weight fact conducted pursuant confidentiality, since otherwise unwilling discuss private matters risk mistreatment gives group additional assuring anonymity maintained. Finally, magnifies importance maintaining identities. 175-177. (c) knowing served summaries, reveal how many interviewed, took place, interviews' contents, status. addition shed further on conduct obligation. 177-178. (d) "derivative use" requested documents—here, hope can used obtain outside files—would ever justify release individuals need addressed, there nothing record suggest second set any relevant information. Nor scintilla evidence tends impugn integrity reports, and, therefore, they should accorded presumption legitimacy. 178-179. 908 F.2d 1549 (CA11 1990), reversed. STEVENS, J., delivered opinion Court, REHNQUIST, C.J., WHITE, BLACKMUN, O'CONNOR, SOUTER, JJ., joined, all but Part III SCALIA KENNEDY, joined. SCALIA, filed concurring part judgment, THOMAS, consideration decision case. Kent L. Jones, Washington, D.C., petitioner. Michael Dean Ray, Miami, Fla., respondent. Justice STEVENS Court. 1 response request, produced 25 attempted emigrate involuntarily Names individual deleted documents. presented these provides requirements do apply 5 U.S.C. § 552(b)(6). 2 * densely populated nation located 500 nautical miles southeast Florida western third Caribbean Island Hispaniola. Prior history severe economic depression dictatorial government motivated large numbers citizens without obtaining permission either States. A small number those aliens eligible as refugees,1 almost deportation if identified apprehended. 3 burgeoning "illegal migration sea aliens" countries, President Reagan Coast Guard intercept vessels carrying except passengers qualified refugee status, return point origin. See Presidential Proclamation 4865 Sept. 29, 46 Fed.Reg. 48107 (1981); Exec.Order 12324, 48109 (1981). directed enter into "cooperative arrangements appropriate foreign governments purpose preventing sea." Fed.Reg., 48109. Following directive, "not departure." Agreement Migrants Interdiction, 23, States-Haiti, 33 U.S.T. 3559, 3560, T.I.A.S. 10241. monitor assurance, personnel confidential emigrants six months involuntary All one two harassed prosecuted 4 lawyer represents seeking three his clients. attempting immigrated will persecution homeland therefore refugees country. Relying former Guard, taken position proceedings well founded. test accuracy persecuted Haiti, series agencies persons Insofar before us, net was production documents, approximately pages, describe specific summarize during successive periods.2 Thus, example, summary prepared March 1985 follow-up program begun 31/2 years earlier, embassy interviewed 812 22.83 percent total migrant interdictee population.3 time, report continued, "only interdictees mentioned threat authorities. claim unverifiable witnesses present, higher authorities intervened prevent rural policeman."4 related interviews, respondents.5 only issue us decide redaction lawful. 6 "mere act addresses little speculation" "safe relocation Haitians." Ray Justice, 725 F.Supp. 502, 505 (SD Fla.1989). 7 1990). For reasons, however, disagreed Court's "de minimis" characterization stake. First, noted wanted enable interviewees directly treatment Government. Id., 1554. Second, recognized "the promised talked officials." Ibid. began balancing process "by acknowledging interests stake." nevertheless "adequately persecute returnees" "is public" express 1555. not, itself, tell anything honesty, cross-examine required 1555-1556. 8 We granted certiorari review Appeals' construction 499 ----, 111 1101, 113 212 (1991), now reverse. II 9 preface our evaluation narrow we identification certain resolved earlier stages litigation. 10 After initial decision, affidavits support protected 1, exemption classified 7(C), law enforcement records which, released, "could reasonably expected privacy."6 ruled waived claims raising until denied, F.Supp., 505, held ruling abuse discretion, F.2d, 1557. denied petition insofar question, mention here establishing requisite heavier standard applicable 7(C). Reporters Committee Press, 489 749, 756, 109 1468, 1472-1473, 103 774 (1989). prevail under establish interviewees' "clearly unwarranted." 11 meet burden, relies, part, assurances confidentiality. suggested texts some expressly such assurances. Neither nor Appeals, questioned promises actually made; contrary, made, both courts matter did outweigh disclosure.7 relevant, course accept factual predicate decision. 12 That conclusion rested, what described "whether returnees." inconsistent statement officials, basis questioning honesty officials. occasion version facts. 13 note, finally, never consist files" within meaning 6.8 Because unquestionably "similar exemption. Washington Post Co., 456 595, 602, 102 1957, 1962, 72 358 (1982). "would person's 14 enacted facilitate access John Doe Agency Corp., 493 146, 151, 110 471, 475, 107 462 statute designed " 'to pierce veil administrative secrecy open scrutiny.' 361, 1599, (1976). Consistently purpose, plain language Act, strong favor places withholding Ibid.; Committee, U.S., 755, S.Ct., 1472. remains seeks document withhold entire document. 552(a)(4)(B). 15 procedure is, FOIA.9 Congress thus informing operation cases unnecessarily compromising privacy.10 Accordingly, leading interpreting Academy disciplinary "with references deleted." 380, 1607-08. discharged demonstrating contents statutory 16 As text requires balance privacy" "agency scrutiny," id., 1604. properly analysis considering significance persuaded, several factors, considered together, make appeared assume interviewees. But sought—and disclose—the summaries. points out, contain interviewees.11 released redacted, highly regarding marital employment children, living conditions, attempts States, particular, named Although constitutes becomes Cf. 380-381, 1607-1608. 18 people cooperated investigation prosecute returnees. failed acknowledge fact.12 explains, could "embarrassment relationships." App. 43. More importantly, occupies special status: left violation government's Department. Department's indicates fulfilled, true danger sufficiently real necessitate program. How may course, impossible measure, protecting given great weight. Indeed, very request present today. 19 persuaded agree does necessarily prohibit disclosure, Not apparent interviewee willing he she expose public—and regard subsequent party armed affront her privacy—but, discussed above, 20 cannot overlook plan direct reports. recognized, IV 21 substantial, still consider unless unwarranted," prevail. repeatedly "basic 'full exempted delineated language,' . focuses citizens' informed 'what up to.' Official sheds agency's performance duties falls squarely purpose." 773, 1481 (quoting 360-61, 1598-1599) (internal citations omitted). cognizable FOIA. 22 portions already inform reader duty status 23 asserted rely stems rather others, able files. argues entirely beyond adopt categorical rule excluding There rigid case, already-interviewed forth produced. Mere speculation hypothetical benefits demonstrably address theory 24 unmoved ascertaining veracity evidence, themselves elsewhere record, generally accord official If totally unsupported suggestion out agents telling truth justified materials, defense What sort misconduct sufficient genuine On satisfied proposed serious judgment Reversed. 26 THOMAS 27 KENNEDY joins, judgment. 28 I join III. 29 Act's recognizes, ante, 175, context evaluating public-interest side balance, parties vigorously disputed so-called "derivative" uses—i.e., intrinsic records, also, potential additional, valuable generated investigative efforts possible. 30 majority my view, refute persuasive contention derivative uses, privacy, impermissible. Perhaps sensible applied whenever "cause," "produce," "lead see, e.g., National Assn. Retired Fed. Employees Horner, 279 U.S.App.D.C. 27, 32, 879 873, 878 (1989), cert. 494 1078, 1805, 108 936 (1990)—though practical problems implementing provision considerable. enacted. Since 552(b)(6) "disclosure" "constitute (emphasis added); exemptions 'must narrowly construed,' 152, (1989) supra, 1599); unavoidable focus, assessing solely reveals, lead to. Arieff Dept. Navy, 229 430, 436, 712 1462, 1468 (1983) (Scalia, J.). general FOIA, referred 771, 1480-1481, purposes irrelevant. 31 today pointedly abstains deciding derivative-use issue, saying that, existence second-order benefits, "we 'derivative use' individuals." Ante, ----. am content that. seems me, public-benefits side, personal-privacy surely go together (there plausible reason allow bar other) consistent abstention. portion discussing (Part III), "retaliatory [the interviewees'] emigrate," reports." This unnecessary since, notes, each disclose person agreed, pledge power concerning own government. ordinarily wish known himself—and equation finding, quite correctly, summaries," 178 —the unwarranted" answered affirmatively sustained. 32 choose believe explicit point, despite seem me contrary dicta opinion. Article 1.2 Nations Protocol Relating Status Refugees, Jan. 31, 1967, 606 U.N.T.S. 268, acceded 1968, 6223, 6261, 6577, defines "refugee" absent country due "well-founded being reasons race, religion, nationality, membership opinion." obligates comply substantive Articles through 34 Convention July 28, 1951, 189 150, U.S.T., 6225. 33.1 Convention, 6267, states: "No Contracting shall expel ('refouler') manner whatsoever frontiers territories where life freedom threatened account INS Stevic, 467 407, 416-418, 104 2489, 2494-2495, 81 321 (1984). 34, "Contracting far possible assimilation naturalization refugees. ." Cardoza-Fonseca, 480 421, 436-441, 1207, 1215-1218, 94 434 (1987). Respondents alleged list 600 mistreated arrival. found, "record fails improperly withheld o[r] they, indeed, exist," 504 Fla.1989), Eleventh Circuit affirmed 1549, 1559-1560 (1990). concerned immigrants Plaintiffs' Notice Filing Defendant Edited Documents 12. May report, last states date, 1,052 23.28 returnee population. 96. provide "further evidence" keeping commitment 1981 Migrant Interdiction harass migrants departure" continue goal reaching 25-percent rate migrants." memorandum relates following: "__ unemployed 21-year-old mother five younger siblings one-room shack Delmas. His older brother, employed Port-au-Prince, paid $100 fare __ travel S/V Sainte Marie, enroute Miami 6/13/83. explained live although family there. He went school marketable skills. says thinking another reach find job said like travel. twelve days spent board Marie difficult, admitted, take chance. emphatically assisted twice Red Cross food money grants totalling $50." Attachment Declaration Eaves, Acting Deputy Director Office Mandatory Review Classification Declassification Center 5. Exemptions read follows: "(b) [The disclosure] section are— "(1)(A) specifically criteria established Executive kept secret national (B) Order; "(6) privacy; "(7) compiled purposes, extent (C) privacy,. 552. explained: "We mindful, That, factor adds here, compels case." 1554; see ("The determinative outcome"). n. supra. 7, 1472, (1989): "Congress [similar contained 6] authorize delete offend privacy: 'To makes available publishes opinion, policy, interpretation, staff manual instruction.' 552(a)(2)." mandated "[a]ny segregable requesting deletion exempt. 552(b). S.Rep. 813, 89th Cong., 1st Sess., (1965) authority written justification necessary public's know citizen's secure affairs bearing effect public. pertinent unseasonably harsh weather caused increase relief costs; identity so affected public"); H.R.Rep. 1497, 2d (1966), U.S.Code Cong. & Admin.News 1966, pp. 2418, 2425 know, income tax matter, involved public"). These examples guided criminal "rap sheets," exempt 7. that: "Both assessments—like enforcement—are proper subjects concern. just irrelevant understanding operation, too rap sheets system enforcement. dry, chronological, brushes law, concern." 766, 18, 1478, 18. 5, emphasize, implying inherently always list. Instead, Columbia 'significant depends characteristic(s) revealed virtue list, consequences likely ensue.' 877 infra, action.

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