Supreme Court of the United States SCHINDLER ELEVATOR CORPORATION, Petitioner, v. UNITED STATES ex...

8/6/2019 Supreme Court of the United States SCHINDLER ELEVATOR CORPORATION, Petitioner, v. UNITED STATES ex rel. Dan

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Supreme Court of the United StatesSCHINDLER ELEVATOR CORPORATION, Petitioner,

v.UNITED STATES ex rel. Daniel KIRK.

No. 10188.Argued March 1, 2011.Decided May 16, 2011.

Background: Relator brought qui tam action on behalf of United States against contractor pursuant to FalseClaims Act (FCA), alleging that contractor entered into contracts with federal government while not in compliancewith Vietnam Era Veterans Readjustment Assistance Act (VEVRAA). The United States District Court for theSouthern District of New York, Sidney Stein, J., 606 F.Supp.2d 448, dismissed complaint. Relator appealed. The

Court of Appeals, Katzmann, Circuit Judge, 601 F.3d 94, vacated and remanded. Certiorari was granted.

Holding:The Supreme Court, Justice Thomas, held that written Freedom of Information Act (FOIA) responses byDepartment of Labor (DOL) were reports subject to FCA's public disclosure bar, abrogating United States ex rel.Mistick PBT v. Housing Auth. of Pittsburgh, 186 F.3d 376.

Reversed and remanded.

Justice Ginsburg filed dissenting opinion in which Justices Breyerand Sotomayorjoined.

Justice Kagan took no part in the consideration or decision of the case.

West Headnotes

[1] United States 393 120.1

393 United States 393VIII Claims Against United States 393k120 Making or Presentation of False Claims and Other Offenses Relating to Claims 393k120.1 k. In General. Most Cited Cases

The Patient Protection and Affordable Care Act, which amended the public disclosure bar of the False ClaimsAct (FCA), is not applicable to pending cases. 31 U.S.C.A. 3730(e)(4)(A); Patient Protection and Affordable CareAct, 1, 42 U.S.C.A. 18001 note.

[2] Statutes 361 188

361 Statutes 361VI Construction and Operation 361VI(A) General Rules of Construction 361k187 Meaning of Language
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361k188 k. In General. Most Cited Cases

In interpreting a word in a statute, the Supreme Court would look first to the word's ordinary meaning.

[3] United States 393 122

393 United States 393VIII Claims Against United States 393k120 Making orPresentation of False Claims and Other Offenses Relating to Claims 393k122 k. Penalties and Actions Therefor. Most Cited Cases

Report, for purposes of the Freedom of Information Act's (FOIA) public disclosure bar, which generallyforecloses qui tam suits that are based upon the public disclosure of allegations or transactions in a governmentreport, hearing, audit, or investigation, carries its ordinary meaning, which is something that gives information ora notification, or an official or formal statement of facts or proceedings. 31 U.S.C.A. 3730(e)(4)(A).


393 United States 393VIII Claims Against United States 393k120 Making or Presentation of False Claims and Other Offenses Relating to Claims 393k122 k. Penalties and Actions Therefor. Most Cited Cases

A written agency response to a Freedom of Information Act (FOIA) request is a report under the FOIA's public disclosure bar, which generally forecloses qui tam suits that are based upon the public disclosure ofallegations or transactions in a government report, hearing, audit, or investigation, and any records the agencyproduces along with its written FOIA response are part of that response, just as if they had been reproduced as anappendix to a printed report. 5 U.S.C.A. 551 et seq.; 31 U.S.C.A. 3730(e)(4)(A).



Three written Freedom of Information Act (FOIA) responses by Department of Labor (DOL) to False ClaimsAct (FCA) relator's wife, along with their attached records, were reports subject to FCA's public disclosure bar; eachresponse was official or formal statement that gave information and notified wife of agency's resolution of her FOIArequest; abrogating United States ex rel. Mistick PBT v. Housing Auth. of Pittsburgh, 186 F.3d 376. 31U.S.C.A. 3730(e)(4)(A).

[6] Statutes 361 190

361 Statutes 361VI Construction and Operation 361VI(A) General Rules of Construction 361k187 Meaning of Language
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361k190 k. Existence of Ambiguity. Most Cited Cases

In interpreting a statute, the Supreme Court's inquiry must cease if the statutory language is unambiguous and

the statutory scheme is coherent and consistent.



The public disclosure bar of the False Claims Act (FCA) was an effort to strike a balance between encouragingprivate persons to root out fraud and stifling parasitic lawsuits. 31 U.S.C.A. 3730(e)(4)(A).

SyllabusFN*

FN* The syllabus constitutes no part of the opinion of the Court but has been prepared by the Reporter ofDecisions for the convenience of the reader. See United States v. Detroit Timber & Lumber Co., 200 U.S.321, 337, 26 S.Ct. 282, 50 L.Ed. 499.

*1 The public disclosure bar of the False Claims Act (FCA) generally forecloses private parties from bringingqui tam suits to recover falsely or fraudulently obtained federal payments where those suits are based upon thepublic disclosure of allegations or transactions in a criminal, civil, or administrative hearing, in a congressional,administrative, or Government Accounting Office report, hearing, audit, or investigation, or from the news media.31 U.S.C. 3730(e)(4)(A). Respondent Kirk brought such a suit, alleging that his former employer, petitionerSchindler Elevator Corp., had submitted hundreds of false claims for payment under its federal contracts. Tosupport his allegations, Kirk pointed to information his wife received from the Labor Department (DOL) in response

to three requests for records she filed under the Freedom of Information Act (FOIA), 5 U.S.C. 552. GrantingSchindler's motion to dismiss, the District Court concluded, inter alia, that the FCA's public disclosure bardeprived it of jurisdiction over Kirk's allegations that were based on information disclosed in a Government reportor investigation. The Second Circuit vacated and remanded, holding, in effect, that an agency's response to aFOIA request is neither a report nor an investigation.

Held: A federal agency's written response to a FOIA request for records constitutes a report within themeaning of the FCA's public disclosure bar. Pp. .

(a) [R]eport in this context carries its ordinary meaning. Pp. .

(1) Because the FCA does not define report, the Court looks first to the word's ordinary meaning. See, e.g.,Gross v. FBL Financial Services, Inc., 557 U.S. , , 129 S.Ct. 2343, 174 L.Ed.2d 119. Dictionaries

define report as, for example, something that gives information. This ordinary meaning is consistent with the public disclosure bar's generally broad scope, see, e.g., Graham County Soil and Water Conservation Dist. v.United States ex rel. Wilson, 559 U.S. , , 130 S.Ct. 1396, 176 L.Ed.2d 225, as is evidenced by the othersources of public disclosure in 3730(e)(4)(A), especially news media. Pp. .

(2) Nor is there any textual basis for adopting a narrower definition of report. The Second Circuit committed
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the very error this Court reversed in Graham County. In applying the noscitur a sociis canon to conclude that anarrower meaning for report was mandated, the court failed to consider all of the sources of public disclosurelisted in the statutein particular, the reference to news media. See 559 U.S., at , 130 S.Ct. 1396. Applyingthe ordinary meaning of report also does not render superfluous the other sources of public disclosure in 3730(e)(4)(A). Pp. .

(b) The DOL's three written FOIA responses in this case, along with the accompanying records produced toMrs. Kirk, are reports within the public disclosure bar's ordinary meaning. FOIA requires each agency receiving arequest to notify the person making such request of [its] determination and the reasons therefor. 5 U.S.C. 552(a)(6)(A)(i). Like other federal agencies, the DOL has adopted FOIA regulations mandating a written response. Suchagency responses plainly fall within the broad, ordinary meaning of report as, e.g., something that givesinformation. Moreover, any records produced along with such responses are part of the responses, just as if they hadbeen produced as an appendix to a printed report. Pp. .

(c) This Court is not persuaded by assertions that it would be anomalous to read the public disclosure bar toencompass written FOIA responses. Pp. .

*2 (1) The Court's holding is not inconsistent with the public disclosure bar's drafting history. If anything, thedrafting history supports this Court's holding. Kirk's case seems a classic example of the opportunistic litigationthat the public disclosure bar is designed to discourage.Id., at , 130 S.Ct. 1396. Anyone could identify a fewregulatory filing and certification requirements, submit FOIA requests until he discovers a federal contractor who isout of compliance, and potentially reap a windfall in a qui tam action under the FCA. Pp. .

(2) Nor will extending the public disclosure bar to written FOIA responses necessarily lead to unusualconsequences. Kirk argues that the Court's ruling would allow a suit by a qui tam relator possessing records whoserelease was required by FOIA even absent a request, but bar an action by a relator who got the same documents byway of a FOIA request. Even assuming, as Kirk does, that unrequested records are not covered by the publicdisclosure bar, the Court is not troubled by the different treatment. By its plain terms, the bar applies to somemethods of public disclosure and not to others. See Graham County, 559 U.S., at , 130 S.Ct. 1396. It wouldnot be anomalous if some methods of FOIA disclosure fell within the bar's scope and some did not. Moreover,

Kirk's assertion that potential defendants will now insulate themselves from liabilityby making a FOIA request forincriminating documents is pure speculation. Cf. id., at , 130 S.Ct. 1396. There is no suggestion that this hasoccurred in those Circuits that have long held that FOIA responses are reports within the public disclosure bar'smeaning. Pp. .

(3) Even if the foregoing extratextual arguments were accepted, Kirk and his amici have provided no principledway to define report to exclude FOIA responses without excluding other documentse.g., the JusticeDepartment's annual report of FOIA statisticsthat are indisputably reports. Pp. .

(d) Whether Kirk's suit is based upon ... allegations or transactions disclosed in the reports at issue is aquestion to be resolved on remand. P. .

601 F.3d 94, reversed and remanded.

THOMAS, J., delivered the opinion of the Court, in which ROBERTS, C.J., and SCALIA, KENNEDY, andALITO, JJ., joined. GINSBURG, J., filed a dissenting opinion, in which BREYER and SOTOMAYOR, JJ.,joined. KAGAN, J., took no part in the consideration or decision of the case.Steven Alan Reiss, New York, NY, for petitioner.
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Jonathan A. Willens, New York, NY, for respondent.

Melissa Arbus Sherry for the United States as amicus curiae, by special leave of the Court, supporting respondent.

Lisa R. Eskow, Weil, Gotshal & Manges LLP, Houston, TX, Gregory S. Coleman, Marc S. Tabolsky, YetterColeman LLP, Austin, TX, Steven Alan Reiss, Counsel of Record, Gregory Silbert, David Yolkut, Adam Banks,Weil, Gotshal & Manges LLP, New York, NY, for Petitioner.

Jonathan A. Willens, Counsel of Record, Jonathan A. Willens, LLC, New York, NY, for Respondent Daniel Kirk.

For U.S. Supreme Court Briefs, See:2010 WL 4895579 (Pet.Brief)2011 WL 175873 (Resp.Brief)2011 WL 639367(Reply.Brief)

Justice THOMAS delivered the opinion of the Court.*3[1] The False Claims Act (FCA), 31 U.S.C. 37293733, prohibits submitting false or fraudulent claims

for payment to the United States, 3729(a), and authorizes qui tam suits, in which private parties bring civilactions in the Government's name, 3730(b)(1). This case concerns the FCA's public disclosure bar, whichgenerally forecloses qui tam suits that are based upon the public disclosure of allegations or transactions ... in acongressional, administrative, or Government Accounting Office report, hearing, audit, or investigation. 3730(e)

(4)(A) (footnote omitted).FN1

We must decide whether a federal agency's written response to a request for recordsunder the Freedom of Information Act (FOIA), 5 U.S.C. 552, constitutes a report within the meaning of thepublic disclosure bar. We hold that it does.

FN1. During the pendency of this case, the Patient Protection and Affordable Care Act, 124 Stat. 119,amended the public disclosure bar. Because the amendments are not applicable to pending cases, GrahamCounty Soil and Water Conservation Dist. v. United States ex rel. Wilson, 559 U.S. , , n. 1,130 S.Ct. 1396, 1401, n. 1 (2010), this opinion refers to the statute as it existed when the suit was filed.

IPetitioner SchindlerElevator Corporation manufactures, installs, and services elevators and escalators.

FN2In

1989, Schindler acquired Millar Elevator Industries, Inc., and the two companies merged in 2002.

FN2. The facts in this Part, which we must accept as true, are taken from the amended complaint and thefilings submitted in opposition to Schindler's motion to dismiss.

Since 1999, Schindler and the United States have entered into hundreds of contracts that are subject to theVietnam Era Veterans' Readjustment Assistance Act of 1972 (VEVRAA). That Act requires contractors likeSchindler to report certain information to the Secretary of Labor, including how many of its employees arequalified covered veterans under the statute. 38 U.S.C. 4212(d)(1). VEVRAA regulations required Schindler toagree in each of its contracts that it would submit VETS100 Reports no later than September 30 of each year. 48CFR 52.22237(c) (2008); see also 22.1310(b).

Respondent Daniel Kirk, a United States Army veteran who served in Vietnam, was employed by Millar andSchindler from 1978 until 2003. In August 2003, Kirk resigned from Schindler in response to what he saw as

Schindler's efforts to force him out.FN3

FN3. Kirk filed a complaint with the Department of Labor's Office of Federal Contract Compliance
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Programs (OFCCP), claiming that he had been improperly demoted and constructively terminated bySchindler despite his status as a Vietnam era veteran. App. 23a. The OFCCP investigated Schindler'scompliance with VEVRAA and found insufficient evidence to support Kirk's claim. In November 2009,the Department of Labor affirmed the OFCCP's finding. 601 F.3d 94, 99 (C.A.2 2010).

In March 2005, Kirk filed this action against Schindler under the False Claims Act, which imposes civilpenalties and treble damages on persons who submit false or fraudulent claims for payment to the United States. 31U.S.C. 3729(a). The FCA authorizes both civil actions by the Attorney General and private qui tam actions toenforce its provisions. 3730. When, as here, the Government chooses not to intervene in a qui tam action, theprivate relator stands to receive between 25% and 30% of the proceeds of the action. 3730(d)(2).

In an amended complaint filed in June 2007, Kirk alleged that Schindler had submitted hundreds of falseclaims for payment under its Government contracts. According to Kirk, Schindler had violated VEVRAA'sreporting requirements by failing to file certain required VETS100 reports and including false information in thoseit did file. The company's claims for payment were false, Kirk alleged, because Schindler had falsely certified itscompliance with VEVRAA. Kirk did not specify the amount of damages he sought on behalf of the United States,but he asserted that the value ofSchindler's VEVRAA-covered contracts exceeded $100 million.

*4 To support his allegations, Kirk pointed to information his wife, Linda Kirk, received from the Departmentof Labor (DOL) in response to three FOIA requests. Mrs. Kirk had sought all VETS100 reports filed by Schindlerfor the years 1998 through 2006. The DOL responded by letter or e-mail to each request with information about therecords found for each year, including years for which no responsive records were located. The DOL informed Mrs.Kirk that it found no VETS100 reports filed by Schindler in 1998, 1999, 2000, 2002, or 2003. For the otheryears, the DOLprovided Mrs. Kirk with copies of the reports filed by Schindler, 99 in all.

Schindler moved to dismiss on a number of grounds, including that the FCA's public disclosure bar deprivedthe District Court of jurisdiction. See 3730(e)(4)(A). The District Court granted the motion, concluding that mostof Kirk's allegations failed to state a claim and that the remainder were based upon the public disclosure of alle-gations or transactions in an administrative report or investigation. 606 F.Supp.2d 448 (S.D.N.Y.2009).

The Court of Appeals for the Second Circuit vacated and remanded. 601 F.3d 94 (2010). The court effectivelyheld that an agency's response to a FOIA request is neither a report nor an investigation within the meaning ofthe FCA's public disclosure bar. See id., at 103111 (agreeing with United States ex rel. Haight v. Catholic

Healthcare West, 445 F.3d 1147 (C.A.9 2006), and disagreeing with United States ex rel. Mistick PBT v. HousingAuth. of Pittsburgh, 186 F.3d 376 (C.A.3 1999)). We granted certiorari, 561 U.S. , 131 S.Ct. 63, 177 L.Ed.2d 1152 (2010), and now reverse and remand.

IISchindler argues that report in the FCA's public disclosure bar carries its ordinary meaning and that the

DOL's written responses to Mrs. Kirk's FOIA requests are therefore reports. We agree.FN4

FN4. Because we conclude that a written response to a FOIA request qualifies as a report within the

meaning of the public disclosure bar, we need not address whether an agency's search in response to aFOIA request also qualifies as an investigation.

A1

Adopted in 1986, the FCA's public disclosure bar provides:
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7/13

No court shall have jurisdiction over an action under this section based upon the public disclosure of allegationsor transactions in a criminal, civil, or administrative hearing, in a congressional, administrative, or Government

Accounting Office report, hearing, audit, or investigation, or from the news media, unless the action is broughtby the Attorney General or the person bringing the action is an original source of the information. 31 U.S.C. 3730(e)(4)(A) (footnote omitted).

[2][3] Because the statute does not define report, we look first to the word's ordinary meaning. See Gross v.FBL Financial Services, Inc., 557 U.S. , , 129 S.Ct. 2343, 2350, 174 L.Ed.2d 119 (2009) (Statutoryconstruction must begin with the language employed by Congress and the assumption that the ordinary meaning ofthat language accurately expresses the legislative purpose (internal quotation marks omitted));Asgrow Seed Co. v.Winterboer, 513 U.S. 179, 187, 115 S.Ct. 788, 130 L.Ed.2d 682 (1995) (When terms used in a statute areundefined, we give them their ordinary meaning). A report is something that gives information or anotification, Webster's Third New International Dictionary 1925 (1986), or [a]n official or formal statement offacts or proceedings, Black's Law Dictionary 1300 (6th ed.1990). See also 13 Oxford English Dictionary 650 (2ded.1989) ([a]n account brought by one person to another); American Heritage Dictionary 1103 (1981) ([a]naccount or announcement that is prepared, presented, or delivered, usually in formal or organized form); Random

House Dictionary 1634 (2d ed.1987) (an account or statement describing in detail an event, situation, or the like).

*5 This broad ordinary meaning of report is consistent with the generally broad scope of the FCA's publicdisclosure bar. As we explained last Term, to determine the meaning of one word in the public disclosure bar, wemust consider the provision's entire text, read as an integrated whole. Graham County Soil and WaterConservation Dist. v. United States ex rel. Wilson, 559 U.S. , , 130 S.Ct. 1396, 1406, n. 12, 176 L.Ed.2d 225 (2010); see also Tyler v. Cain, 533 U.S. 656, 662, 121 S.Ct. 2478, 150 L.Ed.2d 632 (2001) (We donot ... construe the meaning of statutory terms in a vacuum). The other sources of public disclosure in 3730(e)(4)(A), especially news media, suggest that the public disclosure bar provides a broa[d] sweep. Graham County,

supra, at , 130 S.Ct., at 1404. The statute also mentions administrative hearings twice, reflecting intent toavoid underinclusiveness even at the risk of redundancy.

The phrase allegations or transactions in 3730(e)(4)(A) additionally suggests a wide-reaching public

disclosure bar. Congress covered not only the disclosure of allegations but also transactions, a term that courtshave recognized as having a broad meaning. See, e.g.,Moore v. New York Cotton Exchange, 270 U.S. 593, 610,46 S.Ct. 367, 70 L.Ed. 750 (1926) ( Transaction is a word of flexible meaning);Hamilton v. United Healthcareof La., Inc., 310 F.3d 385, 391 (C.A.5 2002) ([T]he ordinary meaning of the term transaction is a broad referenceto many different types of business dealings between parties).

2*6 Nor is there any textual basis for adopting a narrower definition of report. The Court of Appeals, in

holding that FOIA responses were not reports, looked to the words hearing, audit, or investigation, and thephrase criminal, civil, [and] administrative hearings. It concluded that all of these sources connote the synthesisof information in an investigatory context to serve some end of the government. 601 F.3d, at 107; cf. Brief forRespondent 30, n. 15 (Each is part of the government's ongoing effort to fight fraud). Applying the noscitur a

sociis canon, the Court of Appeals then determined that these neighboring words' mandated a narrower meaning

for report than its ordinary meaning. 601 F.3d, at 107.

The Court of Appeals committed the very error we reversed in Graham County. Like the Fourth Circuit in thatcase, the Second Circuit here applied the noscitur a sociis canon only to the immediately surrounding words, to theexclusion of the rest of the statute. See 601 F.3d, at 107, n. 6. We emphasized in Graham County that allof thesources [of public disclosure] listed in 3730(e)(4)(A) provide interpretive guidance. 559 U.S., at , 130S.Ct., at 1404. When all of the sources are considered, the reference to news mediawhich the Court of Appeals
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8/13

did not considersuggests a much broader scope.Ibid.

The Government similarly errs by focusing only on the adjectives congressional, administrative, or [GAO],

FN5 which precede report. Brief for United States asAmicus Curiae 18. It contends that these adjectives suggestthat the public disclosure bar applies only to agency reports analogous to those that Congress and the GAO wouldissue or conduct.Ibid. As we explained in Graham County, however, those three adjectives tell us nothing morethan that a report must be governmental. See 559 U.S., at , n. 7, 130 S.Ct., at 1403, n. 7. The governmentalnature of the FOIA responses at issue is not disputed.

FN5. Although the statute refers to the Government Accounting Office, it is undisputed that Congressmeant the General Accounting Office, also known as GAO and now renamed the Government Accountabili-ty Office. See Graham County, 559 U.S., at , n. 6, 130 S.Ct., at 1403, n. 6.

Finally, applying the ordinary meaning of report does not render superfluous the other sources ofpublicdisclosure in 3730(e)(4)(A). Kirk argues that reading report to mean something that gives information wouldsubsume the other words in the phrase report, hearing, audit, or investigation. Brief for Respondent 23. But Kirk

admits that hearings, audits, and investigations are processes to obtain information. Ibid. (emphasis added).Those processes are thus clearly different from something that gives information. Moreover, the statutecontemplates some redundancy: An audit, for example, will often be a type of investigation.

We are not persuaded that we should adopt a different, somewhat special meaning of report over the word'sprimary meaning. Muscarello v. United States, 524 U.S. 125, 130, 128, 118 S.Ct. 1911, 141 L.Ed.2d 111(1998). Indeed, we have cautioned recently against interpreting the public disclosure bar in a way inconsistent with aplain reading of its text. In Graham County, we rejected several arguments for construing the statute narrowly, twiceemphasizing that the sole touchstone in the statutory text is public disclosure. 559 U.S., at , , 130S.Ct. , at 1410, 1418. We chose in that case simply to give the text its most natura[l] read[ing], id., at , 130S.Ct., at 1403, and we do so again here.

B

*7 [4] A written agency response to a FOIA request falls within the ordinary meaning of report. FOIArequires each agency receiving a request to notify the person making such request of [its] determination and thereasons therefor. 5 U.S.C. 552(a)(6)(A)(i). When an agency denies a request in whole or in part, it mustadditionally set forth the names and titles or positions of each person responsible for the denial, make areasonable effort to estimate the volume of any [denied] matter, and provide any such estimate to the personmaking the request. 552(a)(6)(C)(i), (F). The DOL has adopted more detailed regulations implementing FOIAand mandating a response in writing. See 29 CFR 70.21(a) (2009) (requiring written notice of the grant of a FOIArequest and a description of the manner in which records will be disclosed); 70.21(b)-(c) (requiring a briefstatement of the reason or reasons for [a] denial, as well as written notification if a record cannot be located or hasbeen destroyed (italics deleted)). So, too, have other federal agencies. See, e.g., 28 CFR 16.6 (2010) (Dept. ofJustice); 43 CFR 2.21 (2009) (Dept. of Interior); 7 CFR 1.7 (2010) (Dept. of Agriculture). Such an agencyresponse plainly is something that gives information, a notification, and an official or formal statement offacts.

Any records the agency produces along with its written FOIA response are part of that response, just as if theyhad been reproduced as an appendix to a printed report. Mistick, 186 F.3d, at 384, n. 5. Nothing in the publicdisclosure bar suggests that a document and its attachments must be disaggregated and evaluated individually. If anallegation or transaction is disclosed in a record attached to a FOIA response, it is disclosed in that FOIA

response and, therefore, disclosed in a report for the purposes of the public disclosure bar.FN6
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Supreme Court of the United States SCHINDLER ELEVATOR CORPORATION, Petitioner, v. UNITED STATES ex...

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