Cable News Network, Inc. v. Fed. Bureau of Investigation
Cable News Network, Inc. v. Fed. Bureau of Investigation
Opinion of the Court
On May 9, 2017, President Donald Trump fired James Comey as Director of the Federal Bureau of Investigation. In the fallout from that event, news rapidly circulated about numerous private conversations *65between the two men over the preceding months. The exchanges left the former Director feeling unnerved and, apparently, wanting a paper trail. On June 8, Comey testified publicly that while still in office, he had created several contemporaneous memoranda documenting up to nine conversations with the President. The content of those memos has since been the subject of intense public speculation and is the focus of these consolidated cases.
Plaintiffs, which include various news organizations and non-profits, all sought copies of the so-called Comey Memos via a tried-and-true method: The Freedom of Information Act,
I. Background
Drawing from public reports, the Court begins by recounting the now-familiar story of Comey's termination, as well as his much-discussed Memos. (The appointment of and investigation by the Special Counsel will be covered in Part III, infra .) It then outlines the procedural history of this case.
A. Factual Background
On March 20, 2017, then-Director Comey confirmed in public testimony "that the FBI, as part of our counterintelligence mission, is investigating the Russian government's efforts to interfere in the 2016 presidential election, and that includes investigating the nature of any links between individuals associated with the Trump campaign and Russia's efforts." Statement Before the House Permanent Select Committee on Intelligence, available at https://www.fbi.gov/news/testimony/hpsci-hearing-titled-russian-active-measures-investigation. He added, "As with any counterintelligence investigation, this will also include an assessment of whether any crimes were committed."
On May 16, 2017-one week after Comey left office-news of his Memos first broke. The New York Times published a report about an Oval Office meeting between President Trump and the then-Director, said to have taken place on February 14 of that year. During this one-on-one conversation, the President allegedly referenced a potential investigation into his former National Security Advisor Michael Flynn's contacts with Russia, telling Comey, "I hope you can see your way clear to letting this go, to letting Flynn go." Michael S. Schmidt, Comey Memo Says Trump Asked Him to End Flynn Investigation, N.Y. Times (May 16, 2017), available at https://www.nytimes.com/2017/05/16/us/politics/james-comey-trump-flynn-russia-investigation.html. The Times report was based on "a memo Mr. Comey wrote shortly after the meeting."
Spurred by this report, the Senate Select Committee on Intelligence held a *66hearing, during which Comey corroborated the Times account. On June 8, he testified under oath for nearly three hours, fielding myriad questions about his Memos. See Hearing with Former FBI Director James Comey, 115th Cong. (June 8, 2017) (Statement of James B. Comey), available at https://www.intelligence.senate.gov/sites/default/files/documents/os-jcomey-060817.pdf. He there explained that after his first conversation with then-President-Elect Trump, he "felt compelled to document" their encounter in a memo, which he "began to type ...on a laptop in an FBI vehicle outside Trump Tower the moment [he] walked out of the meeting."
According to Comey, "Creating written records immediately after one-on-one conversations with Mr. Trump was [his] practice from that point forward."
B. Procedural Background
The same day that news spread of Comey's memoranda, Plaintiff Cable News Network submitted a FOIA request for copies of "all records of notes taken by or communications sent from FBI Director James Comey regarding or documenting interactions (including interviews and other conversations) with President Donald Trump." Def. MSJ (First Declaration of David M. Hardy), ¶ 6; see also
The Department of Justice responded to each request by letter dated June 16, 2017, invoking Exemption 7(A) to withhold all documents. To wit, it stated: "The records responsive to your request are law enforcement records. There is a pending or prospective law enforcement proceeding relevant to these responsive records, and the release of the information could reasonably be expected to interfere with enforcement proceedings."
Four months later, the Government moved for partial summary judgment as to all requests related to the Comey Memos, and Plaintiffs, in turn, filed cross-motions for the same. To bolster its case, the Department of Justice also sought leave to introduce an ex parte and in camera affidavit from David W. Archey, a Deputy Assistant Director with the Counterintelligence Division, who currently supervises all FBI personnel assigned to the investigation into Russia's interference with the 2016 Presidential election. See ECF No.
*6723. After the parties finished briefing, the Court granted the Government's request and ordered, at Plaintiffs' behest, that it also produce all withheld Memos for in camera review. See Minute Order of Jan. 11, 2018.
The Court reviewed those submissions and, out of an abundance of caution, thought it helpful to seek more specifics as to the Memos' connection with an ongoing investigation. It therefore asked that an attorney from the Office of Special Counsel proffer such information. Michael R. Dreeben, who serves as Counsel to the Special Counsel, did so in a sealed, on-the-record ex parte session. Finally, in response to this Court's follow-up questions about that sealed proffer, the Government submitted the Third Declaration of David W. Archey in camera and ex parte . See ECF No. 47. (The agency previously moved to submit the Second Declaration of David W. Archey regarding records other than the Memos, see ECF No. 46, and the Court has not yet ruled on that motion.) Although none of this material is currently available to Plaintiffs, all forms part of the record that could be reviewed on appeal or in any subsequent litigation.
II. Legal Standard
Summary judgment may be granted if "the movant shows that there is no genuine dispute as to any material fact and the movant is entitled to judgment as a matter of law." Fed. R. Civ. P. 56(a) ; see also Anderson v. Liberty Lobby, Inc.,
FOIA cases typically are decided on motions for summary judgment. See Brayton v. Office of U.S. Trade Rep.,
*68III. Analysis
The country (or at least the Beltway) has spent months abuzz about the Comey Memos and what they might reveal. Despite rampant media speculation, however, the Memos themselves have remained out of public view. The Government hopes to keep it that way, but to withhold release under FOIA, it must satisfy two elements. First, it must "demonstrate the ...adequacy of the search" for relevant documents. Perry v. Block,
A. Adequacy of Search
"An agency fulfills its obligations under FOIA if it can demonstrate beyond material doubt that its search was 'reasonably calculated to uncover all relevant documents.' " Valencia-Lucena v. Coast Guard,
Here, the FBI's Records Management Division, which was "involved in compiling and preserving" the former Director's records, first located the memoranda. See First Hardy Decl., ¶ 62. It passed them along to the National Security and Cyber Law Branch of the FBI's Office of the General Counsel, which is responsible for providing legal advice "regarding the Russian interference investigation," Second Declaration of David M. Hardy, ¶ 4, and thus was "already familiar" with the relevant records. See First Hardy Decl., ¶ 62. That group then confirmed that the located materials "were, in fact, the full set of memos."
Two Plaintiffs, nevertheless, remain unconvinced. Daily Caller and USA Today argue that the agency has not adequately explained its search efforts, variously noting that "the FBI did not conduct its search using the standard method of searching its Central Records System," USA Today Br. at 5, and that the agency must "identify the number of records they located." DCNF Br. at 6. Neither argument holds water.
While querying an electronic database may be appropriate in the mine-run FOIA foray, the requests here center on a "discrete set of extraordinarily high-profile" and easily identifiable records-namely, any memoranda that then-Director Comey wrote documenting his conversations with President Trump. See Judicial Watch, Inc. v. Dep't of Defense,
Nor must the Department reveal the exact number of documents located, as it asserts that doing so "could reveal sensitive nonpublic information and compromise the investigation." Def. Reply at 8-9. "[W]here, as here, an agency indicates that no additional information concerning an investigation may be publicly disclosed without revealing precisely the information that the agency seeks to withhold," the Court can properly resolve the issue by in camera review. See Barnard v. Dep't of Homeland Sec'y,
B. Valid Exemption
Although the Government invokes a slew of exemptions-including 1, 3, 6, 7(C) and 7(E)-to justify withholding the Memos, it primarily leans on Exemption 7(A). Because the Court deems this last one applicable, it "need not address the other exemptions invoked by the government and reserve[s] judgment on whether they too would support withholding" the Comey Memos. See Ctr. for Nat'l Security. Studies v. U.S. Dep't of Justice,
"[J]udicial review of an asserted Exemption 7 privilege requires a two-part inquiry." Federal Bureau of Investigation v. Abramson,
1. Exemption 7 Threshold
The Government offers two explanations as to why the Comey Memos satisfy Exemption 7's threshold requirement. First, it says that they contain information that was originally compiled as part of the FBI's investigation into Russian interference. See Def. Reply at 10. Second, it indicates that the Memos themselves have since been compiled for law-enforcement purposes.
DOJ's public briefing (however vague) suggests that the Comey Memos "have been compiled into[ ] the ongoing investigation by the Special Counsel into Russian interference in the 2016 election."
Without reviewing the Archey Declaration, Plaintiffs, of course, are somewhat hamstrung in their ability to dispute this position. Instead, they focus their fire on Comey's intent when he first created the Memos. CNN, Judicial Watch, and Daily Caller argue that the Director, by his own admission, penned these Memos not "in furtherance of an investigation but for 'political' purposes," to "preserv[e] the FBI's integrity as an institution." CNN Br. at 15-17; see also JW Br. at 11; DCNF Br. at 9-10. That may be so, but it matters not if the Memos "were generated on an earlier occasion and for a different purpose." John Doe Agency v. John Doe Corp.,
The Government thus need show only that it has since "compiled" the Memos for law-enforcement purposes, a bar it easily clears. The Supreme Court "has given a fairly broad meaning to 'compiled' under § 552(b)(7)," Milner v. Dep't of Navy,
Plaintiffs try to chip away at this conclusion, but none of their counterarguments proves persuasive. First up, CNN correctly points out that in order to rely on 7(A), the agency must have compiled the documents before it invoked that exemption on June 16, 2017. See Pub. Employees,
Next, Daily Caller highlights that "the FBI searched for and located records in archived, administrative files," rather than "in the Special Counsel's files." DCNF Br. at 10. This is true, but irrelevant. As explained earlier, the exemption applies to "documents already collected by the Government originally for non-law-enforcement purposes." John Doe Agency,
2. Exemption 7(A)
The Court turns now to whether releasing the Memos "could reasonably be expected to interfere with enforcement proceedings."
In evaluating the Department's Exemption 7(A) defense, this Court must "give deference to an agency's predictive judgment of the harm that will result from disclosure of information." CREW,
In disputing that conclusion, Plaintiffs make much of the fact that Comey himself testified about the contents of at least some Memos. In light of those *72public statements, they wonder how much damage release could inflict now. While Comey may have testified about some material in his Memos, he has never disseminated copies publicly. As the D.C. Circuit has held, "[T]he fact that information exists in some form in the public domain does not necessarily mean that official disclosure will not cause harm cognizable under a FOIA exemption." Wolf v. CIA,
Until the Memos themselves enter the public domain, much remains uncertain about their contents, including "the level of detail in the memos, the extent to which they corroborate Mr. Comey's testimony, and the extent to which they contain information that was not the subject of his testimony." Def. Reply at 15-16. Those "lingering doubts" about the accuracy or thoroughness of Comey's testimony suffice to satisfy Exemption 7(A). Military Audit Project v. Casey,
That is not to say, as Daily Caller suggests, that DOJ (or this Court) has adopted the position that "Director Comey lied under oath[.]" DCNF Reply Br. at 5. On the contrary, the Department has been mum on the accuracy of his testimony. The important point is that until the Memos are released, the public (or potential witnesses) cannot know how accurate his recall of the Memos' contents was. And perhaps more to the point, they cannot gauge "the level of detail in the memos" and "the extent to which they contain information that was not the subject of his testimony." Gov't Reply at 15-16.
C. Public Disclosure
As a variant of their prior-disclosure argument, Plaintiffs argue that Justice has waived any FOIA exemption pursuant to the public-domain doctrine. Under that doctrine, "materials normally immunized from disclosure under FOIA lose their protective cloak once disclosed and preserved in a permanent public record." Cottone v. Reno,
1. Public Testimony
This Circuit employs a three-part test to determine whether the public-domain doctrine applies: (1) the "information requested must be as specific as the information previously released"; (2) "the information requested must match the information previously disclosed"; and (3) "the information requested must already have been made public through an official and documented disclosure." Am. Civil Liberties Union v. U.S. Dep't of Def.,
Plaintiffs' reliance on Comey's congressional testimony flunks all three prongs. As discussed above, his paraphrased statements do not necessarily *73"match" any portion of his Memos, nor are they necessarily as "specific" as the original.
In any event, Comey no longer served as FBI Director when he testified and therefore lacked any authority to make official releases on that agency's behalf. To be "official," the release must have been by "the agency from which the information is being sought." Frugone v. CIA,
2. Disclosure to Professor Richman
In his congressional testimony, Comey also admitted that he had shared a copy of at least his February 14 Memo with a "good friend" who is "a professor at Columbia law school." Transcript of Comey Hearing. The Plaintiffs presume this friend to be Professor Daniel Richman, see, e.g., CNN SOMF, ¶ 34; JW SOMF, ¶ 48, and the Government does not directly dispute that assertion. See Gov't Response to CNN's SOMF, ¶ 34; Response to JW'S SOMF, ¶¶ 35-48. The Court therefore adopts the same assumption and considers whether the February 14 Memo (or any others disclosed to Richman) must be released.
The parties debate exactly when Comey made that disclosure, as the Government says it is "unaware" whether "Director Comey, during his tenure as Director, publicly shared the memos, their contents, or details about the conversations they document." Second Hardy Decl., ¶ 6. But even if it occurred before his termination, Comey apparently never intended to do so in his official capacity; rather, at the time, he considered the Memos his "own personal" recollections, which he "felt free to share" "[a]s a private citizen." Transcript of Comey Hearing. Consequently, the Department reports that it "has not located any documented official disclosure of the memos or their contents." Second Hardy Decl., ¶ 6. Against that backdrop, the Director's entrustment of his then-personal Memos to a friend falls short of an "official and documented disclosure." ACLU,
At any rate, Comey's limited disclosure to one friend, even if made in his official capacity, is insufficient to waive Exemption 7(A) protection. The D.C. Circuit *74has counseled that "while the logic of FOIA postulates that an exemption can serve no purpose once information ...becomes public, we must be confident that the information sought is truly public and that the requester receive no more than what is publicly available before we find a waiver." Cottone,
In this case, the withheld documents are far from "truly public." On the contrary, they exist-at most-in one law professor's possession. Professor Richman's home or office hardly qualifies as the "public domain." The D.C. Circuit's opinion in Students Against Genocide v. Department of State,
True, Professor Richman (at least at one point) may have possessed some subset of the Memos, whereas the delegates in Students Against Genocide only saw the withheld photographs. That difference, however, is of no moment. As an initial matter, Richman has publicly reported returning all documents to the FBI. See Matt Zapotosky, Comey Friend Says He Is 'Turning Over Relevant' Documents to FBI, Wash. Post (June 13, 2017), https://www.washingtonpost.com/politics/2017/live-updates/trump-white-house/sessions-to-testify-before-senate-intelligence-committee/comey-friend-says-he-is-turning-over-relevant-documents-to-fbi/?utm_term=.78194270be35. If that is so, it is clear that no "permanent public record[s]" remain of the Memos. See Cottone,
Even if Richman retained copies, that would not vitiate the agency's exemption. In arguing otherwise, Plaintiffs latch onto language in Students Against Genocide stating that "a disclosure made to any FOIA requester is effectively a disclosure to the world at large."
In fact, at this point-almost nine months since Comey could have shared *75any Memo in his official capacity-Richman has still not released anything. Although he, apparently at Comey's behest, described the contents of the February 14 Memo to the New York Times, the newspaper made clear that it had "not viewed a copy of the memo"; instead, Richman "read parts of it to a Times reporter." Schmidt, Comey Memo Says Trump Asked Him to End Flynn Investigation, N.Y. Times (May 16, 2017). To the extent Richman still holds copies, he has kept them close to his vest. Were it otherwise, Plaintiffs would have little need to seek the Memos by way of FOIA.
In like circumstances, "courts generally find no waiver under § 552(b)(7)(A) even though there has been a limited, discretionary disclosure." Anderson v. Dep't of Treasury, No. 98-1112,
The Court acknowledges that this situation is rather unprecedented; it is not every day that an FBI Director feels the need to memorialize his conversations with a sitting President and then publicize that he did so. But the caselaw aligns with common sense. The public-domain doctrine exists because release of a "truly public" document can do little harm to the agency's interests; in that case, the exemption "can serve no purpose." Cottone,
3. Other Arguments
Plaintiffs also raise an array of other arguments for waiver, but the Court can dispose of each in short order. First, USA Today contends that this Court has discretion to treat "President Trump's public denial of the substantive accuracy of Director Comey's claims [as] incorporating by reference the substance of what Director Comey said occurred." USA Today Br. at 12. Plaintiff's logic is a bit hard to parse, and it admits to lacking any "case law on-point" for its position, but the upshot seems to be that the President's denials somehow constitute an "official disclosure" of any referenced Memo's contents. Id. at 11. This theory suffers at least two flaws. First, Trump repudiated Comey's testimony; he never discussed nor purported to know the contents of the Memos themselves. He therefore could not have "incorporated" that information by reference into any official disclosure. Second, the President's denials hardly recited any portion of the Memos verbatim and thus are not as "specific" as the records sought nor an exact "match" for their content. See ACLU,
Daily Caller and Judicial Watch next argue that the FBI "officially acknowledged" Comey's testimony when it failed to "dispute, disavow, [or] even disagree" with it. See DCNF Br. at 13; see also JW Br. at 15. Far from "an official and documented disclosure," however, the agency's silence is just that-silence. See ACLU,
Finally, Judicial Watch maintains that the agency itself revealed the "potential connection between the memo [concerning the Flynn discussion] and Special Counsel Mueller's investigation." JW Reply at 3. It suggests that voluntarily disclosing this connection somehow "undermines" the agency's entire Exemption 7(A) defense, such that it must now disclose the Memo in toto .
By contrast, DOJ does not argue here that release of the documents is harmful merely because they are in the Special Counsel's folder. Instead, Justice seeks to protect the contents of the Memos, as release would reveal "the level of detail in the memos, the extent to which they corroborate Mr. Comey's testimony, and the extent to which they contain information that was not the subject of his testimony." Def. Reply 15-16. None of that information is public, and Exemption 7(A) thus applies with full force.
D. Segregability
Even if this Court stops short of releasing some or all Memos in full, Plaintiffs alternatively ask that it require the Department to turn over any non-exempt portions of those records. See, e.g., CNN Br. at 28-29. FOIA requires that an agency produce "[a]ny reasonably segregable portion" of a record "after deletion of the portions which are exempt."
Here, the Government asserts that no "logically divisible" section of the Memos is segregable. Indeed, releasing any portion would necessarily reveal their "level of detail," as well as the extent to which those records do-or do not-corroborate Comey's testimony or include any information omitted from that public account. See Def. Reply 15-16. The Court has reviewed the disputed documents in camera and confirmed that no portion is reasonably segregable.
It stresses, however, that Exemption 7(A) is temporal in nature and not designed to "endlessly protect material simply because it [is] in an investigatory file." Robbins Tire & Rubber,
*77Stein v. SEC,
E. Rule 56(d) Discovery
Finally, Freedom Watch moves under Federal Rule of Civil Procedure 56(d) to place the summary-judgment proceedings on ice until it can conduct discovery. Under that Rule, a court may defer considering a motion for summary judgment, deny the motion, or allow time for the non-movant to obtain affidavits or declarations or to take discovery if that party "shows by affidavit or declaration that, for specified reasons, it cannot present facts essential to justify its opposition." Such an affidavit must state "with sufficient particularity why additional discovery is necessary." United States ex rel. Folliard v. Gov't Acquisitions, Inc.,
Plaintiff asks this Court to allow discovery or, alternatively, to "review all responsive documentation in camera and then inform the parties of its determination of which of the documents, if any, truly fall under any valid FOIA exemption." FW Br. at 5. Now that the Court has followed this latter course, it is not clear whether Freedom Watch's request for discovery still stands. To the extent it does, the Court denies it. Plaintiff never makes clear exactly what it seeks in discovery, other than noting that the agency has "failed to even provide a Vaughn index," which would catalog the documents withheld. Id. at 4. But the agency has now provided the Court with the actual Comey Memos, giving it all materials needed to evaluate Exemption 7(A). Plaintiff has thus failed to identify any other documents that might be "necessary to the litigation." Folliard,
IV. Conclusion
For the foregoing reasons, the Court grants Defendants' Motion for Partial Summary Judgment and denies Plaintiffs' Cross-Motions. It also denies Plaintiff Freedom Watch's Motion for Relief under Rule 56(d). A contemporaneous Order to that effect will issue this day.
Reference
- Full Case Name
- CABLE NEWS NETWORK, INC. v. FEDERAL BUREAU OF INVESTIGATION, (And Consolidated Cases)
- Cited By
- 11 cases
- Status
- Published