Ctr. for Biological Diversity v. U.S. Envtl. Prot. Agency

369 F. Supp. 3d 1
Court of Appeals for the D.C. Circuit·Decided March 27, 2019·No. Civil Action No. 16-175 (BAH)·Published·Cited by 12 cases

Opinion

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Having "demonstrate[d] beyond material doubt that its search was reasonably calculated to uncover all relevant documents," Ancient Coin , 641 F.3d at 514, EPA is entitled to summary judgment as to the adequacy of the search.

B. EPA's Withholdings Under Exemption 5

As noted, the parties dispute the withholding of 80 records, in whole or in part, under Exemption 5's deliberative process privilege, three of which records are email chains also partially withheld pursuant to the attorney-client privilege. See Def.'s 2d Reply at 22-24; Fifth EPA PIRIB Decl. ¶¶ 17-19.6 FOIA Exemption 5 *16protects from disclosure "inter-agency or intra-agency memorandums or letters that would not be available by law to a party other than an agency in litigation with the agency." 5 U.S.C. § 552(b)(5). This exemption "incorporates the privileges that the Government may claim when litigating against a private party, including the governmental attorney-client and attorney work product privileges, the presidential communications privilege, the state secrets privilege, and the deliberative-process privilege." Abtew v. U.S. Dep't of Homeland Sec. , 808 F.3d 895, 898 (D.C. Cir. 2015). Here, EPA relies upon both the governmental attorney-client privilege and the deliberative process privilege.

CBD challenges EPA's claim that three records are subject to withholding under the attorney-client privilege and, as a categorical matter given the statutory requirements under which the Addenda were developed, application of the deliberative process privilege to any of the records. The merits of the parties' arguments as to application of Exemption 5 are addressed in that order.

1. Application of The Attorney-Client Privilege

CBD disputes EPA's application of the attorney-client privilege to three records: Fifth Vaughn Index entry nos. 14, 37, and 64, see CBD's 2d Reply at 10, of which 14 and 37 are email chains with partial redactions, and 64 is withheld in full. The EPA has sufficiently explained the basis for these withholdings, as explained below.

The attorney-client privilege aims "to encourage full and frank communication between attorneys and their clients and thereby promote broader public interests in the observance of law and administration of justice." United States v. Jicarilla Apache Nation , 564 U.S. 162, 169, 131 S.Ct. 2313, 180 L.Ed.2d 187 (2011) (quoting Upjohn Co. v. United States , 449 U.S. 383, 389, 101 S.Ct. 677, 66 L.Ed.2d 584 (1981) ). These objectives apply equally to governmental clients seeking to obtain "legal advice founded on a complete and accurate factual picture," and thus "the Government may invoke the attorney-client privilege in civil litigation to protect confidential communications between Government officials and Government attorneys." Id. at 170, 131 S.Ct. 2313. To establish that the attorney-client privilege applies in the FOIA context, an agency must show that (1) "the information in [the] documents was communicated to or by an attorney as part of a professional relationship," (2) "the information is confidential," and (3) the "communication is based on confidential information provided by the client." Mead Data Ctr., Inc. v. U.S. Dep't of Air Force , 566 F.2d 242, 253-54 (D.C. Cir. 1977).

EPA states that the three emails withheld under the attorney-client privilege were "not shared with any person outside of the Agency attorneys and their clients in the Office of Pesticide Programs." Fourth EPA PIRIB Decl. ¶ 15; see also Fifth Vaughn Index at 43, 70 (stating that entries 37 and 64 were kept confidential). With respect to entry nos. 14 and 37, EPA explains that "[i]n the redacted *17portion of each of the emails, OPP employees directly discussed advice provided to them by OGC attorneys on the potential legal vulnerabilities of possible policy options OPP was considering at the time." Fifth EPA PIRIB Decl. ¶ 17; see also Fifth Vaughn Index at 18 (stating that redacted portion of entry no. 14 "reflects OGC's impression of potential legal vulnerabilities for the draft ESA in its form at the time of the email"). CBD takes issue with the fact that "EPA did not identify an attorney as the author or recipient," Pl.'s 2d Reply at 11, but the absence of an attorney participating in communications among agency personnel relaying an attorney's legal advice does not preclude application of the privilege. See Story of Stuff Project v. U.S. Forest Serv. , 345 F.Supp.3d 79, 96 (D.D.C. 2018) (upholding application of the attorney-client privilege to emails which "relay among agency employees confidential advice supplied by the agency's lawyer"); Evans v. Atwood , 177 F.R.D. 1, 6 (D.D.C. 1997) (noting that "circulating truly confidential information among concerned officials does not defeat the privilege since all the recipients shared the attorney-client privilege with each other").

Finally, entry no. 64 is comprised of two emails in a chain, with only the second email withheld. Fifth EPA PIRIB Decl. ¶ 19. This second email is a communication between two EPA attorneys which, EPA avers, "is entirely comprised of a legal analysis of a specific portion of the draft six-state risk assessment." Id. ; see also Fifth Vaughn Index at 71 (stating that the legal advice "relate[s] to applicable statutes and EPA regulations" bearing on the proposed registration of Enlist Duo). This explanation suffices to assert the privilege.

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Ctr. for Biological Diversity v. U.S. Envtl. Prot. Agency, 369 F. Supp. 3d 1 (D.C. Cir. 2019).

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