Court Opinion

ID: 9460732
Source: CourtListenerOpinion
Date Created: 2023-08-04 21:58:57.687035+00
Date Added: 2024-06-11T17:36:45.495862
License: Public Domain

ROBB, Circuit Judge,
dissenting:
The Federal Aviation Administration is required by law “to promote safety of flight of civil aircraft in air commerce” by the issuance of standards, rules and regulations. 49 U.S.C. § 1421(a). Under 49 U.S.C. § 1425(b) the Administrator is also required to employ inspectors who shall advise and cooperate with air carriers in the inspection and maintenance of aircraft, aircraft engines, propellers, and appliances used in air transportation. To carry out these mandates *1037the FAA developed the Systemsworthiness Analysis Program (SWAP).
SWAP investigative teams composed of highly trained and experienced FAA inspectors make periodic visitations to certified air carriers to inspect and analyze their maintenance and safety operations. A SWAP inspection covers the entire operation of the carrier being studied, including such matters as flight crew training, non-flight crew training, airport and communications facilities, flight operations policies and procedures, air carrier records and crew scheduling, and check airmen and examiners. See SWAP Handbook, FAA Order 8000.3C. The investigative team works in close cooperation with airline management to find any area of maintenance, operations, management or performance which needs improvement. To facilitate cooperation and the full and frank disclosure by the airline upon which the system depends, the SWAP program operates with the understanding between the airlines and the FAA that the contents of SWAP reports will not be released to the public. FAA Order 8000.3C para. 204. The findings of a SWAP inspection team are disclosed to the operator under examination, to enable that operator to discuss them intelligently, but they are not made available to any other operator.
Against this background the airlines, invoking section 1104 of the Federal Aviation Act of 1958, 49 U.S.C. § 1504, objected to the public disclosure of SWAP reports. The airlines stated:
As has been set forth by the FAA in a memorandum to its regions dated February 7, 1967, “The SWAP Program requires a cooperative effort on both the part of the company and FAA if it is to work effectively.” Information freely given to the FAA SWAP team by air carrier management personnel is not specifically required by the FAR’s [Federal Aviation Regulations].
If public disclosure of the SWAP reports were made, the interests of aviation safety would be in danger of being subordinated in some degree to legal considerations in the presentation of information to the FAA. The present practice of nonpublic submissions, which includes even tentative findings and opinions as well as certain factual material, encourages a spirit of openness on the part of airline management which is vital to the promotion of aviation safety — the paramount consideration of airlines and government alike in this area.
(J.A. 100.)
The Administrator sustained the objection, holding that disclosure of SWAP reports “would adversely affect the interests of the airline being investigated and is not required in the interest of the public.” I think the Administrator’s ruling was justified by exemption (3) of the Freedom of Information Act, 5 U.S.C. § 552(b)(3).
Congress did not intend the Freedom of Information Act to repeal all other statutes which restricted public access to government records. Thus, Senator Long, Chairman of the Senate Judiciary Committee’s Subcommittee on Administrative Practice and Procedure, and a leading proponent of the Freedom of Information Act stated:
It should be made clear that this bill in no way limits statutes specifically written with the congressional intent of curtailing the flow of information as a supplement necessary to the proper functioning of certain agencies.
Hearings on S. 1166 and S. 1663 (in part), Before the Subcomm. on Administrative Practice and Procedure of the Senate Judiciary Committee, 88th Cong., 1st Sess. 6 (1963). Again, in explaining exemption (3) the House Committee on Government Operations noted that there are “nearly 100 statutes or parts of statutes which restrict public access to specific Government records. These would *1038not be modified by the public records provisions of S. 1160.” (H.R.Rep.No. 1497, 89th Cong., 2d Sess. 10, U.S.Code Cong. & Admin.News 1966, p. 2427.) (Emphasis added.) Commenting on the House Report the Attorney General’s memorandum on the Public Information Section of the Administrative Procedure Act (June 1967) stated:
The reference to “nearly 100 statutes” apparently was inserted in the House report in reliance upon a survey conducted by the Administrative Conference of the United States in 1962. This survey concluded that there were somewhat less than 100 statutory provisions which specifically exempt from disclosure, prohibit disclosure except as authorized by law, provide for disclosure only as authorized by law, or otherwise protect from disclosure. The reference therefore indicates an intention to preserve whatever protection is afforded under other statutes, whatever their terms. (Emphasis added.)
Section 1104 is tailored to the needs and problems of the Federal Aviation Administration — needs and problems which are well illustrated by this case. I cannot believe that this specific statute was overridden or repealed by the general terms of the Freedom of Information Act. The earlier and specific statute should prevail over the later more general enactment. In particular, the later act should not be read to delete the “public interest” standard from every disclosure statute in which it appears— including section 1104.
The Circuit Court of Appeals for the 5th Circuit has held that exemption (3) authorizes the Federal Aviation Administration to withhold information pursuant to section 1104, 49 U.S.C. § 1504. Evans v. Dept. of Transportation, 446 F.2d 821 (5th Cir. 1971), cert. denied, 405 U.S. 918, 92 S.Ct. 944, 30 L.Ed.2d 788 (1972). I agree.
I respectfully dissent.