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Smart Summary

Factual and Procedural Background

On December 31, 1992, plainclothes City of Columbia police officers approached a group of teenagers playing basketball; the youths fled, were apprehended briefly, and then released. Kevin Alexander Gray questioned the officers' conduct; the Chief ordered an internal investigation and later announced no wrongdoing. Gray and the ACLU of South Carolina requested a copy of the internal investigation report under the South Carolina Freedom of Information Act (FOIA). The City refused and sought a declaratory judgment that the report was exempt from FOIA. In discovery Appellants moved to compel production of the report; the trial court denied the motion and granted summary judgment to Respondent. Appellants appealed. The Supreme Court reversed the grant of summary judgment, affirmed denial of the motion to compel, and remanded.

Legal Issues Presented

  1. Whether the internal investigation report is exempt from disclosure under FOIA § 30-4-40(a)(2) as "information of a personal nature" constituting an unreasonable invasion of personal privacy.
  2. Whether the secrecy permitted for certain closed "discussions" under FOIA § 30-4-70(a)(1) renders internal investigation reports per se exempt from disclosure.
  3. Whether the trial court erred in denying Appellants' motion to compel production of the report under Rule 34, SCRCP, when the report is the subject matter of the FOIA action.

Arguments of the Parties

Appellants' Arguments

  • Summary judgment was erroneous because there is a genuine issue of material fact whether the report contains "information of a personal nature" exempt under § 30-4-40(a)(2).
  • The report should be produced in discovery under Rule 34, SCRCP.

Respondent's Arguments

  • The internal investigation report is exempt from FOIA disclosure, either because it contains personal information or because internal investigations are per se exempt.
  • The internal investigation process is akin to a § 30-4-70(a)(1) closed "discussion," and therefore any memorializing report should be exempt.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Citizens Southern National Bank of South Carolina v. Lanford, 313 S.C. 540, 443 S.E.2d 549 (1994). Standard for summary judgment (no genuine issue of material fact; moving party entitled to judgment as a matter of law). Used to frame the appropriate standard for granting summary judgment in this FOIA action.
Koester v. Carolina Rental Center, Inc., 313 S.C. 490, 443 S.E.2d 392 (1994). Standard that evidence and inferences must be viewed in the light most favorable to the nonmoving party when assessing summary judgment. Applied to require viewing facts and inferences favorably to Appellants in evaluating summary judgment.
Newberry Publishing Co., Inc. v. Newberry County Comm'n on Alcohol and Drug Abuse, 308 S.C. 352, 417 S.E.2d 870 (1992). FOIA exemptions must be determined on a case-by-case basis; no per se exemption for categories absent statutory text. Relied upon to reject Respondent's contention that internal investigation reports are per se exempt and to require case-by-case examination of report contents.
Paschal v. State Election Comm'n, 317 S.C. 434, 454 S.E.2d 890 (1995). Principle that courts must apply plain and unambiguous statutory language and avoid forced constructions. Used to interpret FOIA provisions: § 30-4-70(a)(1) does not, by plain language, exempt public records defined by § 30-4-20; exemptions governed by § 30-4-40.
Knight Publishing Co. v. University of South Carolina, 295 S.C. 31, 367 S.E.2d 20 (1988). Documents that are the subject matter of a FOIA action are central to the suit and discovery of such documents is governed by principles specific to FOIA litigation. Applied to conclude the report is the subject matter of the FOIA suit and therefore not subject to ordinary discovery without court determination of exemptions.
Giza v. Secretary of Health, Education, and Welfare, 628 F.2d 748 (1st Cir. 1980). Authority that attempting discovery of materials or testimony that are the object of the suit is improper; supports restricting discovery of subject-matter materials. Cited to support the conclusion that the report—being the object of the FOIA claim—is not discoverable absent prior judicial review of exemptions.
Theriault v. United States, 503 F.2d 390, 392 (9th Cir. 1974). Supporting authority (as cited in Giza) that securing testimony or materials that are the object of a suit is improper discovery. Indirectly relied upon via Giza to reinforce the principle restricting discovery of the object of the suit.

Court's Reasoning and Analysis

The Court first reviewed the summary judgment standard and emphasized viewing evidence favorably to the nonmoving party. It recognized FOIA's general right to inspect public records but noted § 30-4-40(a)(2) exempts "information of a personal nature" that unreasonably invades privacy. Because the trial court made no finding about the report's contents and it was unclear whether the judge examined the report, summary judgment was improper as there remained a genuine issue of material fact whether the report contains exempt personal information. The Court rejected Respondent's argument that internal investigation reports are per se exempt, citing Newberry and holding exemptions must be resolved case-by-case.

The Court also addressed Respondent's analogy to § 30-4-70(a)(1) (permitting closed "discussions" of employee discipline), concluding by plain statutory language that § 30-4-70(a)(1) does not exempt public records defined by § 30-4-20 and that exemption determinations must be made under § 30-4-40.

Regarding the motion to compel, the Court held the report is the subject matter of the FOIA action and therefore not discoverable in ordinary discovery. Citing Knight and Giza, the Court explained that before appellants may obtain the report the trial court must first examine it in detail to determine whether the report or portions thereof qualify for exemption under § 30-4-40; accordingly, denial of the motion to compel was affirmed.

Holding and Implications

Summary judgment granted to Respondent reversed; denial of Appellants' motion to compel affirmed; matter remanded.

Direct consequences: the trial court's grant of summary judgment in favor of the City is vacated and the case returns for further proceedings consistent with the opinion, including in camera review of the report to determine whether any portions are exempt under § 30-4-40. The denial of discovery (motion to compel) is affirmed pending that judicial review. The Court applied existing FOIA interpretive principles and required case-by-case exemption analysis rather than establishing a categorical new exemption.

CITY OF COLUMBIA, Respondent v. AMERICAN CIVIL LIBERTIES UNION OF SOUTHCAROLINA, INC., and Ke

BURNETT, Justice:

This is an action for declaratory judgment arising under the South Carolina Freedom of Information Act (FOIA), S.C. Code Ann. §§ 30-4-10 to -110 (1991 Supp. 1994). Appellants appeal the trial court's grant of summary judgment to Respondent, which we reverse, and the denial or Appellants' motion to compel, which we affirm.

FACTS

On December 31, 1992, a group of teenagers was playing basketball when several plainclothes officers of the City of Columbia Police Department approached. The teenagers ran but were subsequently apprehended. The police officers detained them briefly and then released all or them. The police department later explained that the plainclothes officers were participating in "Operation Year End Sales", a campaign to execute outstanding, arrest warrants. The police had believed that one the young men was a possible subject of an outstanding arrest warrant.

Appellant Gray, one of the young men, contacted Respondent to question the conduct of the police officers during the detention. In response, the Chief of Police ordered an internal investigation. Upon completion of the investigation, the Chief announced that no wrongdoing on the part of the police officers had been revealed. Gray and Appellant ACLU then requested a copy of the internal investigation report (hereinafter "report") under the FOIA. Respondent refused their request and filed this action seeking a declaratory judgment that the report is exempt from the disclosure requirements of the FOIA.

As part of their discovery requests, Appellants sought production of the report itself. The trial court denied Appellants' motion to compel production of the report. Respondent moved the trial court for summary judgment, which was granted.

DISCUSSION I. Summary Judgment

Summary judgment is appropriate when it is clear that there is no genuine issue of material fact, and that the moving party is entitled to judgment as a matter or law. Citizens Southern National Bank of South Carolina v. Lanford, 313 S.C. 540, 443 S.E.2d 549 (1994). In determining whether any triable issues of fact exist, the evidence and all inferences which can be reasonably drawn from the evidence must be viewed in light most favorable to the nonmoving party. Koester v. Carolina Rental Center, Inc., 313 S.C. 490, 443 S.E.2d 392 (1994).

Under the FOIA, "[a]ny person has a right to inspect or copy any public record of a public body, except as otherwise provided by § 30-4-40, in accordance with reasonable rules concerning time and place of access." Section 30-4-30(a). Under § 30-4-40(a)(2):

There is no dispute that Respondent is a "public body" and that the report is a "public record" within the meaning of the FOIA. See § 30-4-20(a) (c).

(a) The following matters are exempt from disclosure under the provisions or this chapter: . . .
(2) Information of a personal nature where the public disclosure thereof would constitute unreasonable invasion of personal privacy. . . .

Appellants argue that summary judgment was erroneously granted because there was a genuine issue of material fact whether the report contains "information of a personal nature" under 30-4-40(a)(2) so as to exempt it from the FOIA. We agree. The trial court made no finding regarding the contents of the report. Indeed, it is unclear from the trial court's order whether the report's contents were examined by the judge.

We disagree with Respondents' contention that the internal investigation reports of law enforcement agencies are per se exempt because they contain personal information as a matter of course. The determination of whether documents or portions thereof are exempt from the FOIA must be made on a case-by-case basis. Newberry Publishing Co., Inc. v. Newberry County Comm'n on Alcohol and Drug Abuse, 308 S.C. 352, 417 S.E.2d 870 (1992). Thus, it remains to be seen whether the report qualities for an exception under the FOIA.

Another basis for the trial court's holding that the report is exempt from disclosure also warrants discussion. Under the FOIA, a public body may hold a meeting closed to the public to discuss, among other things, the employment, demotion, or discipline of an employee. Section 30-4-70(a)(1). Respondent analogizes its internal investigation process to § 30-4-70(a)(1) "discussion", and argues that because Respondent can conduct such a discussion closed to the public, it therefore follows that any report memorializing, that discussion should also be exempt from disclosure under the FOIA. The trial court agreed with Respondent, holding that "[i]t is impossible to render a harmonious construction of the Act which makes the Internal Affairs file subject to disclosure."

If a statute's language is plain and unambiguous, and conveys a clear and definite meaning, there is no occasion for employing rules of statutory interpretation and the court has no right to look for or impose another meaning. Paschal v. State Election Comm'n, 317 S.C. 434, 454 S.E.2d 890 (1995). Where the terms of the statute are clear, the court must apply those terms according to their literal meaning. Id. This Court cannot construe a statute without regard to its plain and ordinary meaning, and may not resort to subtle or forced construction in attempt to limit or expand a statute's scope. Id.

The plain language of 30-4-70(a)(1) does not exempt from disclosure a "public record" as that term is defined by § 30-4-20. Section 30-4-70(a)(1) does no more than to allow public bodies to conduct certain "discussions" closed to the public. Thus, as the report is a public record as defined by 30-4-20, the question of its exemption must be resolved by reference to 30-4-40 ("Matters exempt from disclosure").

II. Motion to Compel

As part of their discovery requests, Appellants sought production of the report under Rule 34, SCRCP. When Respondent refused to produce the report, Appellants filed a motion to compel production, which was denied. Appellants argue that the denial of the motion was error. We disagree.

"Parties may obtain discovery regarding any matter, not privileged, which is relevant to the subject matter involved in the pending action . . . ." Rule 26(b)(1), SCRCP. Not only is the report relevant to the subject matter involved in this case, it is the subject matter of the case itself. See Knight Publishing Co. v. University of South Carolina, 295 S.C. 31, 367 S.E.2d 20 (1988). As such, the report is not discoverable. Giza v. Secretary of Health, Education, and Welfare, 628 F.2d 748 (1st Cir. 1980). Before Appellant becomes entitled to the report, the trial court must first examine the report in detail in order to determine whether the report's contents or portions thereof qualify for all exemption under § 30-4-40. Accordingly, this matter is

Knight Publishing, supra, was an FOIA action in which the plaintiffs' discovery requests sought production of documents which were the subject matter of the lawsuit. We held:

The appealed order allows discovery of documents that respondents ultimately seek disclosed as the subject of these FOIA actions. This order is directly appealable under S.C. Code Ann. § 14-3-330(2)(a) (1976) because it in effect determines the action and prevents an appealable judgment . . . .

Giza v. Secretary, supra, was a "wrongful birth" case filed in state court in which plaintiffs alleged that defendant negligently manufactured a birth control pill called Modicon. Plaintiffs sought to depose Dr. Finkel, an FDA employee, in order to elicit testimony that Finkel had been involved in the involuntary recall or Modicon. When FDA refused to permit Finkel to testify, Plaintiffs sued in federal court, seeking an order requiring, FDA to provide Finkel for a deposition. The court stated: "We also agree with the district court that the attempt to depose Dr. Finkel was improper discovery because securing her testimony was an object of the Gizas' suit. See Theriault v. United States, 503 F.2d 390, 392 (9th Cir. 1974)." Giza, 628 F.2d at 751 n. 6 (emphasis in original).

Reversed in part; affirmed in part; and remanded.

FINNEY, C.J., and TOAL, MOORE, and WALLER, JJ., concur.

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CITY OF COLUMBIA v. AMERICAN CIVIL LIBERTIES UNION
(Aug 12, 1996)