Two New Articles of Interest on e-Discovery Teams

April 18, 2008

some lawyers think litigation has now entered the Revenge of the Nerds stageI discovered two new articles this week on my favorite subject, indeed the name of this blog, e-discovery teams. The first is a cheerleader kind of easy read by Dale Buss of Corporate Counsel magazine. He quotes many in-house counsel who are pleased with their team efforts. The second article is by attorney Eric Friedberg of Stroz Friedberg. It contains legal analysis and insights into the multidisciplinary team approach. Friedberg wrote this article in connection with an event for the Sedona Conference so you know it is a serious work.

David Buss’ Article

Dave Buss’ article on e-discovery teams is entitled Keeping Your Firm’s E-Discovery In-House. It is an informal report based on interviews with in-house attorneys and paralegals already involved with e-discovery teams. It highlights a truth already known by everyone in the e-discovery world, that the legal profession is entering a Revenge of the Nerds phase of litigation. Buss reviews a few of the benefits of managing e-discovery in-house, as opposed to the more traditional solution of outsourcing everything to lawfirms and vendors.

Ross begins by noting that most corporations are just starting to realize the magnitude of the e-discovery problems they face from runaway electronic records mismanagement. This presents in-house counsel with a question of how to go about solving that problem:

Corporate counsel first must decide whether to deal with these growing demands in-house, to outsource the function — or to use some combination of internal and external resources.

Many companies still outsource everything, but a few are now doing at least some of the work themselves. They refer out less and less to outside vendors by building a strong, internal e-discovery team to do the work.

The article quotes Thomas Avery, with the e-discovery team of Aon Corp., as recommending that “legal departments establish as much as possible of the ESI-management function in-house as swiftly as they can.” The senior manager of legal operations for Raytheon Co., Woods Abbott, is said to strongly agree. So too does Patrick Oot, director of electronic discovery and senior litigation counsel for Verizon Communications. Patrick is quoted as saying, “it’s difficult to trust a third party with your mission-critical case information.” That is one reason Verizon is moving more of its e-discovery process in-house, even including many ESI review tasks. Another factor is the company’s projected savings of several million dollars a year.

Another blogger, Jerry Bull, a young e-discovery specialist and consultant in Los Angeles with an IT background, has already written about Buss’ article. See his tech oriented blog E-Discovery in the Trenches. Bull notes the trend to taking it in-house, but also correctly points out a few of the dangers and difficulties in this path:

IT departments aren’t equipped to deal with the high stakes nature of e-discovery work; and the personnel aren’t suited at all to deal with attorneys and attorney requests. I used to be an IT guy and I can tell you that we are bred with a troubleshooting mindset. Everything is up for experimentation and subject to trial and error (we deal primarily with Microsoft tools, after all). This approach simply doesn’t work in litigation.

Still, Bull appears to think it can be done with sufficient support, including full funding and staffing. As he puts it:

Planning for an in-house staff of e-discovery professionals and a handful of reliable, independent consultants will go a long way in easing the transition.

I completely agree. An e-discovery team needs dedicated, trained players, and plenty of time to practice. This is the only way to play competitively in the professional litigation leagues.

Eric Friedberg’s Article

This nine page article by Eric Friedberg, entitled New Electronic Discovery Teams, Roles, and Functions, is written in the opposite style to Ross’ work. It is based on experience and analysis, rather than interviews. It is harder to read, but well worth the effort. Although I disagree with one minor legal statement in the article concerning preservation of “not reasonably accessible” ESI, I agree with everything else, including the meat of the article, his analysis, and insights into e-discovery teams.

The article starts with the observation that many of the mistakes made in e-discovery originate from problems in communication between IT and Legal. I call this the “Who’s On First” phenomena of lawyer/tech miscommunication. Friedberg refers to Judge Scheindlin’s famous quote of the Cool Hand Luke movie in Zubulake: “What we’ve got here is a failure to communicate.Zubulake v. U.B.S., 229 F.R.D. 422, 424 (S.D.N.Y. 2004).

He sees the best solution to this problem, as do I, in the formation of interdisciplinary corporate e-discovery teams:

Compliance with emerging electronic discovery obligations, and conducting electronic discovery in a consistent and efficient manner, requires new cross-disciplinary teams (hereinafter “New Teams”), with updated organizational roles (hereinafter “New Roles”) and functions (hereinafter “New Functions”). These New Teams often draw representatives from an organization’s in-house legal, IT, compliance, records management, and human resources departments at the corporate and business unit levels, as well as from the outside counsel and the forensic/electronic discovery vendor to whom the company looks for strategic advice.

The article points out a fundamental problem that sometimes dooms new teams to amateur status, insufficient buy-in and funding by upper management. The article points out that differing levels of support by team owners can have a dramatic impact on team effectiveness and morale:

At one end of the spectrum, senior management and the board back and fund a broad mandate to improve records management and electronic discovery processes, and support the requisite change management. In other cases, the New Team members do what they can to coordinate their respective functions but have little budget and less staffing, and struggle in tackling larger initiatives. In such cases, senior management seems to have little understanding of how records management and electronic discovery are increasingly interwoven with corporate governance, ethics, and compliance. While senior management is ultimately responsible for the increased risk inherent in failing robustly to support New Teams, the individual team members on the front lines often feel exposed in attempting to do more with less in an era of rising obligations and multimillion dollar sanctions.

The above quote demonstrates one of the strong points of this article, which I recommend you read in full; it combines strong theoretical insights with good practical observations.

The article goes on to describe the work of the team, but without the sports analogies I employed in my last article, What Game Does an e-Discovery Team Play? Friedberg focuses on the teamwork needed to create effective litigation hold procedures, new ESI archiving platforms, consistent positions in court, data mapping, and the collection and search of ESI. On these last key functions, which my article refers to as finding and picking up the ball, Friedberg points out a valid issue, or problem, which all teams must face, when and at what point to outsource:

The key consideration in establishing these New Functions is to determine where the internal IT function leaves off and when outside vendors should be utilized. Even highly-competent in-house forensic teams can not handle spikes in collections required by large civil or regulatory matters, short deadlines, or a confluence of cases. In addition, it is much more difficult to search data effectively than to collect it. There is less external training available for electronic discovery search technologies and methodologies. As a result, in-house personnel typically rely on off-the-shelf software, which may fail to properly search data or to convert data to searchable form. . . . .

Many in-house IT personnel, for example, use the Outlook client to search Outlook mail. That client, however, does not search attachments or flag items that it can not search. New Teams can address these risks by receiving outside consulting advice on acceptable protocols for searching electronic data. Determining where to draw the line between in-house and external resources is not only a technical issue. Cases that are high-profile or in which the prior role of IT has already been criticized may call for the use of independent resources.

True, true. For a good example of this, see Louis Vuitton Malletier v. Dooney & Bourke, Inc., 2006 U.S. Dist. LEXIS 87096 (S.D.N.Y. Nov. 30, 2006). I previously wrote about this case showing incompetence by corporate IT in Louis Vuitton Sanctioned for Sand-Bagging.

Friedberg’s article concludes with a discussion of outside electronic discovery counsel, whom he calls “one of the most important New Team members.” Not surprisingly, I agree with that. I think all e-discovery teams, even experienced, well established ones, should include an outside attorney on the team. Since experienced outside counsel typically associates with and represents a number of different corporate teams, they can provide unique perspective and advice to each team they represent. Their independence can also serve an important function. It not only allows them to appear in court to represent the team, but also puts them in the best position to steer the team away from any Qualcomm-like disasters. Good outside counsel can make sure the Team plays by the rules, even in the big ticket, high pressure games where employee players may come under a lot of pressure to win, no matter what the cost. outside counsel can argue with the judgeAn outside attorney on the team can help keep the games clean, and steer team members away from the kind of temptations that cost Qualcomm its patent, and its GC his job. Further, this kind of high-road team participation puts outside counsel in a strong position to protest any questionable calls made by the umpire.

The article also points out the many ways outside counsel can assist a team, including important training functions:

The right counsel can facilitate the entire New Teams process, providing stewardship and key strategic advice to achieve compliance and help avoid sanctions. Indeed, New Teams are using outside counsel to train in-house Team members on emerging case law and the obligations under the New Rules. Not only does the substantive advice help the New Team, but in the event of an electronic discovery mishap, the training itself demonstrates the organization’s good faith, which is a key to avoiding sanctions.

Friedberg also notes a danger in the use of outside counsel that are also trial counsel. Personally, I do not serve as trial counsel anymore. If I appear of record in a case, it is solely to handle electronic discovery related issues. Apparently some attorneys still do both, and I admire their genius, but frankly I do not have enough time or talent for both roles. This limitation removes me from conflicts inherent in the dual role, and allows me to provide independent advice in the area of my core competency. Friedberg correctly advises a company who uses the same attorney as trial counsel and e-discovery lawyer to beware of possible conflicts of interest inherent in such a dual role:

First and foremost, a company’s outside counsel must have deep expertise in electronic discovery law and strategy. When outside electronic discovery counsel is also trial counsel, the in-house team members should closely consider whether outside counsel’s electronic discovery advice will be adversely affected by its role as trial counsel. Such an affect can take the form of over-preserving data so as to avoid any arguments that might, in trial counsel’s view, “distract” from the merits of the case. This might be the right strategy in a particular case, but it can also cost the company substantial sums of money and create stockpiles of data that are difficult to manage thereafter.

The article also points out that the e-discovery lawyer may sometimes be called upon to testify in court, and explain to a judge what happened when the team’s procedures are challenged. Here the credibility of your e-discovery lawyer becomes very important. Moreover, if a waiver of privilege is required to defend the team, it is easier to limit the scope of the waiver if the e-discovery lawyer played only a limited role in the case.

This is a balanced and well thought out article, and not simply a white paper pitch for services. Eric Friedberg also points out a problem with separate e-discovery counsel.

On the other hand, there are clearly inefficiencies in having multiple counsel, and separate electronic discovery counsel can struggle to become fully integrated in the matter so as to render their best advice.

This is very true, which is why it is important to have experienced counsel, capable of working closely with trial counsel to quickly understand the issues in the case.

Another problem which the article does not point out, is the simple fact that using multiple counsel can be very costly, and may not be practical in smaller or even mid-size cases. The services of specialty e-discovery attorneys, especially ones with sufficient knowledge and skills to serve on an internal corporate e-discovery team, can be expensive. There are not that many attorneys with these specialty skills, and all the ones I know carry a high hourly rate. Some cases are simply not worth the expense. Unfortunately, these smaller dollar value cases can still have very complex ESI collection and e-discovery issues. The proportionality limits of Rule 26(b)(2)(C) can help, but even so, costly mistakes leading to sanctions can still be made.

Here a company could help itself with retainer agreements and other alternative billing arrangements. See Eg. the Law.com Article on Mark Chandler, General Counsel for Cisco, who champions alternative fee arrangements. That way a company could always get good “off the clock” advice on complex issues whenever it is needed, regardless of the size or economics of the case. Otherwise, it is all too easy for a stupid, nothing case to explode into a nightmare, and, if your company is the defendant, force a settlement for far more money than a case is worth. We have all seen it happen, even with pro se cases, where the courts tend to lean over backwards to allow a case to go forward. Having a technology attorney on call with some kind of creative retainer agreement as Mark Chandler recommends might be a good way to avoid that trap.


What Game Does an e-Discovery Team Play?

April 13, 2008

this game is not permitted in litigationHide the ball is certainly not the game for an e-Discovery Team to play. Some people think that is what discovery is all about, and in the world of paper discovery, years ago, there was some truth to that. But not today, and certainly not in electronic discovery. It may be tempting to some, but if you play hide the ball in e-discovery, and get caught, you may not only lose the case, but you may lose your job, and maybe even your license. It is never worth it, just ask Qualcomm’s lawyers. Instead, an e-Discovery Team plays a series of games that culminates in throwing the ball to the other side, not hiding it.

Before you can get to the final throwing step of production of electronically stored information (”ESI”), there are a series of preliminary games to be played. Here is how I summarize the e-Discovery team playbook:

    basketball

  • Find the Ball
  • Save the Ball
  • Pick up the Ball
  • Shrink the Ball
  • Clean the Ball
  • Aim the Ball
  • Throw the Ball

The first game of find the ball is called the Identification step in the standard industry language of the Electronic Discovery Reference Model(”EDRM”). By looking at the standard EDRM model below you can quickly see how each game represents a basic step in the EDRM.

EDRM Standard Model for e-Discovery

Find the Ball

Finding the ball is far easier said then done. For most companies, the problem derives from storing terabytes of data. Imagine a string of warehouses storing a billion basketballs, and you have to search through and find the one ball among them autographed by Michael Jordan. Unless the Team is well established, you probably do not have an accurate, detailed, up-to-date map of all of the warehouses. You probably have only a vague idea where this one basketball might be located. It might be somewhere in a centralized bin, or in any one of dozens of other locations, including closets in employee homes, or off-site Internet storage lockers. It might even exist only in a shrunk down version, hiding in the pocket of one of a thousand employees; perhaps in their thumb-drive, or iPhone. Moreover, ever day a thousand basketballs are destroyed (hopefully not the one with Jordan’s autograph), and twelve hundred new ones are added. Yes, it is a very challenging game indeed

To make matters worse, you are never sure exactly what balls you are looking for, especially when the game first begins. You may have to guess, from a vague complaint, what balls are relevant. As I have written before, this is one of Anne Kershaw’s pet peeves, and rightfully so. Under federal notice pleading rules, very few details are required in a complaint to state a cause of action. So defense counsel is often left speculating what ESI will be discoverable and relevant in a new case. Still, you have to start making educated guesses to try to find the right batch of balls. From the large selection first identified, you will eventually throw a few to the other side.

The way most teams do this is to analyze the dispute to try to determine what the issues will be in the case. This gives you a general idea of the types of balls that may come into play. Then you start to determine a general time line; hopefully the potentially relevant balls will be constrained by time. You may be able to know, with some certainty, that balls made before or after a certain time are not relevant and need not be searched. An e-Discovery Team will also try to limit the search to balls made or stored by certain key players. These are the people in your company that are likely to be involved as witnesses in the lawsuit. The Team’s search should be focused on the storage bins of these key players.

Save the Ball

After playing find the ball, the next game is save the ball. Here the Team devises ways to preserve most of the balls identified as potential evidence in the last game. Again, this can be a very challenging game, especially when your company has many different auto-destruct routines in place (and most companies do).

If you think it is easy to stop all of these programs, just ask Intel. They thought they had stopped deletion of excess email for all the key players in the anti-trust case against AMD, but in fact the janitor programs remained in place for the most important players, including the top officers of the company. Their email was deleted for years after the case was filed. They tried to play a very complicated game of save the ball, but failed. For a better idea of just how difficult this game can be, check out Intel’s report to the supervising district court judge on their failed attempts to preserve evidence. This mistake has supposedly already cost Intel millions of dollars to correct by forcing them to go to their backup tapes to find the deleted emails, and the meter is still running. AMD is, of course, claiming that the error was intentional. They would like the court to enter sanctions for spoliation and turn this mistake into an outright win of the whole case.

So make no mistake about it, save the ball is one of the most important games an e-Discovery Team plays. As I have discussed before, that is why most e-Discovery Teams focus on this game as soon as the Team is formed, and look for ways to improve their company’s litigation hold procedures.

Pick Up the Ball

Again, this game sounds easy enough, you just collect the relevant ESI from the data you have identified and preserved. Seems easy, but it is not. There are tricks and traps here aplenty. If you are not careful, you could collect too much or too little. Generally you do not want to simply pick up all of the balls you have saved. That will make the next games too expensive. You want to screen out the ones that are unlikely to be needed, and probably are not relevant at all, but were preserved just in case. You want to preserve more broadly than collect because you never want to play save the ball twice in the same case. Not only is that kind of do-over expensive, but it may be futile because, in the meantime, routine processes may have deleted many balls not saved in the first pass.

You also do not want to pick up too few balls, and leave behind many that are directly relevant and should later be thrown to the other side. That kind of careless collection can also be expensive. It can force you into an expensive do-over, and open you to charges of hiding the ball. See Eg. Court Disapproves Defendant’s “Hide the Ball” Discovery Gamesmanship.

Careless collection often occurs if the Team simply delegates this function to the key witnesses, and does not properly supervise or follow-up on their ball-picking efforts. The same comment holds true to the two prior games of ball identification and preservation. The Team cannot over-delegate its responsibility to key players and then just hope for the best. These are their games, and the Team must take responsibility to see they are played correctly. That is the whole purpose of an e-Discovery Team.

For that reason, in most cases it will not suffice to simply send out a preservation letter to the key players which describes the dispute, and then leaves it to them to find the relevant balls for themselves, save them, and pick them up. Without help and supervision from the Team, the key players may not know which of their computer files are relevant, they may not know how to properly preserve this ESI, nor how to collect it. They are sure to make mistakes. Thus, when the key players in a company are called upon to take part in the games, which in itself makes a lot of sense, since they should know their own information better than anyone else, they should be given expert help and advice from the e-Discovery Team. In other words, it is perfectly all right for the Team to delegate some of this work to the key players in the litigation, but the Team must still supervise and follow-up. Ultimately the Team should be responsible, since they are trained and more experienced in collection than the key players. The Team should have personal meetings with the key players and closely monitor their activities. In many cases, the Team should also implement certain safeguarding mechanisms to supplement the key players’ efforts, such as automated copying and keyword searches.

Another common mistake made in pick up the ball is to carelessly change the ball in the very process of picking it up. You could, for instance, change the metadata of a file, such as information as to when it was last viewed, saved, or revised. This is an especially high risk when the Team attempts to rely upon key players to pick up the ball for them. Although this probably will not matter in most cases, in some cases, such as stock backdating cases, this might be very important. As a general rule, the Team tries not to change the ball too much by the act of picking it up. The Team may later strip a file of all or part of its metadata on purpose, if that facilitates later cleaning or throwing, especially if the metadata is not important in the case, or not wanted, but they never want to do it accidentally.

A final common mistake, one of my pet peeves, is to neglect to hash the ball when you collect it, and properly preserve and tie the hash into each ball thereafter. I have described the process of using hash mathematics to authenticate ESI at length in my law review article, HASH: The New Bates Stamp, 12 Journal of Technology Law & Policy 1 (June 2007). I also provide an overview of the subject in this blog. The Team may already have hashed files as part of the preservation game; but if not, it is essential that they now be hashed at the collection stage. Hashing provides a unique identifying alphanumeric value for each computer file collected. This hash value can be later checked to prove that the file has not been altered since it was collected. This is a key step in ESI authentication to allow for admission into evidence at a hearing or trial. In most cases, hashing should be a normal part of ball pickup.

Shrink the Ball

shrink the ballShrink the ballis the game where the Team can save the company a lot of money. Thus, from a financial perspective, it is the most important game of all. In this culling step, you process the ESI to eliminate as much duplicate and irrelevant information as possible. Here good software and automated process are critical; so too is careful strategic thinking,

The goal is to significantly reduce the amount of ESI that must be reviewed and cleaned in the next steps. Thus, for instance, at the end of the last game you may have identified and preserved 1,000 gigabytes (1 terabyte) of ESI, and collected 500 gigabytes. To give you some idea of the amount of information we are speaking about, in some circumstances the 500 gigabytes may be equivalent to 500 truckloads of paper. It would cost a small fortune for teams of lawyers to read that much paper. We are talking about years of billable lawyer time to read that much data. It would also be a colossal waste of time because they would end up reading the same document dozens, if not hundreds of times. So it is critical to aggressively eliminate the redundant and immaterial ESI in this processing stage. In many cases the 500 gigs can be cut down to 100 or 50 gigs, resulting in tremendous savings in the expensive review games to come.

Clean the Ball

golf ball washerHere is where the big bucks come in, the cost to review the data for privileged, confidential, and irrelevant material. Still, most internal corporate e-Discovery Teams will not clean their own ball, they will hand it off to their caddy to do it for them, typically their outside legal counsel. A few of the more mature and well organized Teams have started to review their own data, and clean them the ESI themselves. They have teams of contract attorneys they employ to do this work at reduced rates, some even send the data to lawyers in India for review. But for most Teams, this is advanced play that they do not have the time or skill to attempt.

This is a very important and risky step in the EDRM process and companies want to be sure it is done right. You review the truckloads of email and documents that have not already been culled out in the prior games so that you can remove the files that do not have to be produced. The last thing you want to do is produce privileged materials to your adversary. You need to clean your production of these secret files and produce a log of them instead. Even with a clawback agreement, an accidental disclosure can still result in waiver of your privilege to third parties. You also want to be sure the ESI review catches all confidential materials, and that they are produced with appropriate markings and confidentiality agreements. Trade secrets can be lost forever if they become a public record by filing with a court.

Aim the Ball

Now we come to the lawyerly game of aim the ballwhere the ESI is analyzed to see how it fits into the case at hand. Here lawyers and paralegals tag each file to an issue, typically using review software. They also make final decisions as to whether and how information is responsive to discovery requests, or otherwise must be produced (or not). The files are categorized and rated for importance. Is this email a smoking gun that could kill your case, or is it merely of marginal relevance to a secondary issue? You had better find this out, and fast, as to each computer file you are about to disclose to the other side. If your analysis of the information to be produced shows you have a strong case, you will approach the case far differently than if your analysis shows you will surely lose when all of the cards are put on the table.

Obviously this analysis stage requires the sure hand and steady aim of trusted outside counsel assigned to defend or prosecute the case. Still, the legal members of the Team should assist and be involved in the analysis and evaluation of the merits of the case. This game concludes with final decisions by legal counsel on what should be produced and what should be withheld. These decisions must be rational and made in good faith.

If analysis shows you have a losing hand, you had better fold early before the other side realizes your position. You cannot do like Qualcomm and decide to withhold evidence just because you don’t like it. You can see where hiding the ball got them - they lost the patent they sued to enforce, they paid over eight million dollars in fees to the other side, their general counsel resigned in disgrace, and their outside counsel are now fighting to retain their licenses. When you are a plaintiff and find yourself in this position, you do not file the suit to begin with or, if you discover it in midstream, you should dismiss and cut your losses. The same applies when you are in a defense position. It is not an option to try and hide the evidence that will hurt your defense. You must instead try and make the most of it and settle as best as you can. That is how the American system of justice works and all Teams have to play by these same fundamental rules. Voluntary disclosure may not be the rule in the rest of the world, especially the civil law countries in Europe, but that is how the game is played here. If you are defending or prosecuting a case in the U.S., you are going to have to reveal your data to your adversary, even if that kills your case.

Throw the Ball

The last game is the culmination of all the rest. The analysis game resulted in final decisions on what files to be produced. Now you actually make the production. Throwing the ball is not really all that hard, so long as you enlist the aid of WORMs. No, not the creepy crawly kind, but the “Write Once, Read Many” times kind, such as optical discs, CDs or DVDs. The ESI on these media cannot be altered after written onto the discs, thus providing you, and the receiving party, with a certain amount of protection that the files will not be accidentally altered. Worms help the parties maintain a permanent record of the ESI produced.

Another tricky aspect of production is deciding the form of production. Do you produce in native format with full internal metadata retained, or do you produce in a TIFF or JPEG format with a load file ready for import into review software? This should have already been worked out with opposing counsel as part of the Rule 26(f) conference, or the original production request; but if not, you have to make these decisions now.

Take the time to clearly mark and label the production media. One thing I hate is a CD production with no writing on it, or just indecipherable handwriting. Write out a full description of the CD and the date of production and name of the case. Think of chain of custody issues and do not forget to make multiple copies. Another thing I have noticed lately is the use of paper labels on CDs. That’s ok, but beware of labels that peel off. As a safeguard, it is better to use ink jet printers that print directly on the CD, instead of glue on labels. If you must use adhesive labels, put some kind of writing directly on the CD itself, just in case it peels off somewhere down the line.

Finally, if you use TIFF or other image type files where you affix Bates stamp type markings to identify individual ESI files, please consider adding a truncated hash value to the file ID. As discussed in HASH: The New Bates Stamp, this will facilitate both identification and authentication, and allow for easier comparison with the native originals.

Concluding Thoughts

These games are difficult. Much like golf, it is not a game of perfect. Mistakes are inevitable. Even Tiger Woods messes up from time to time, and does not win them all, so why should you be any different? Document your efforts, play it safe, and use redundant systems whenever economically feasible. Thus, when a mistake is later discovered, you may be able to cover it with a backup system. Or, if that is not possible, you can at least show to the supervising judge that you made good faith, reasonable efforts. The judge should understand and cut you a break, maybe even give you a mulligan. If the judge does not realize that mistakes are inevitable, he or she simply does not understand the game. Then it is up to you to explain it to them, or hire an expert who can.


Declaratory Judgment Approach to Burdensome Pre-Litigation Preservation Demand Tried and Rejected: Is this a Case of “No Good Deed Goes Unpunished”?

April 6, 2008

Guest Blog: by Michael Simon

In the final paragraph of last week’s post Ralph made the following suggestion on a potential way to deal with an onerous pre-litigation hold demand:

If all else fails, and the potential dollar exposure justifies the expense, a preemptive suit for a declaratory judgment may even be appropriate. You will be breaking new ground to be sure, but as the landscape of litigation changes, new strategies such as this should be considered to cope with the new challenges these changes present.

Unbeknownst to Ralph, at the very time he was writing those prophetic words, the United States District Court for the Eastern District of Texas was giving a thumbs down to that very idea. The case is Texas v. City of Frisco, 2008 WL 828055 (E.D. Tex. Mar. 27, 2008). In reality, as I will explain below, this may be a case where two rights make a wrong: The plaintiff did such a good job of complying with the litigation hold that the Court could not understand plaintiff’s problem.

In Frisco, the State of Texas was faced with the following dilemma: The Texas Department of Transportation (”TxDot“) was planning to convert portions of State Highway 121 from a freeway to a toll road. Apparently a portion to be converted went through the City of Frisco. The City seemingly did not want the pleasure of paying tolls and was (and perhaps still is) considering filing a challenge to the Environmental Re-Evaluation of the State Highway pursuant to the National Environmental Policy Act (”NEPA”), 42 U.S.C. §§4331-4347. As a kick-off to this potential litigation, on April 13, 2007 the City sent TxDot a letter entitled Notice Regarding Preservation of Electronic Data.

This preservation demand does (perhaps intentionally) a poor job of specifying the subject matter of the demand. It broadly states that TxDot should preserve “electronic data associated with SH 121 and its conversion from a freeway to either a privatized or public tollway.” As to the types of ESI to be preserved, the demand is fairly well drafted and imposes a heavy burden on TxDot:

  • The demand explicitly instructs TxDot to “immediately preserve potentially relevant Electronic Data including, without limitation information with the earlier of a Created or Last Modified date on or after January 1, 2004 through the date of this demand.
  • The demand identifies a relatively comprehensive and quite burdensome list of potential ESI file types to be preserved, including items such as “deleted files,” “computer system activity logs,” “all file fragments and back-up files containing Electronic Data,” and “all backup tapes or other storage media.”
  • The demand instructs TxDot to “preserve and retain all Electronic Data” which “relates to, mentions and/or is received or generated by TxDot… in connection with the plan and/or project to convert SH 121 into a tollway or any subsequent related work/project.” The demand specifically states that this includes all communications with: the contractor and other bidders for the project; the City of Frisco; any of numerous Texas government departments and the Legislature and the Governor.
  • The demand even reminds TxDot that “you must intervene to prevent the loss of information as a result of routine operations, protocols and/or destruction policies.”

Perhaps with tongue slightly planted in cheek, the demand offers that “It is not our intent to obstruct TxDot’s everyday operation,” but then goes on to remind TxDot that “your diligent and good faith compliance of this request should also include modification or suspension of features of your information system, which in routine operation may cause the loss of relevant information….”

As with any litigation hold demand, TxDot had to make a decision: did it need to comply with the demand? If so, what is the scope of the preservation duty?

Is There an Obligation to Preserve Pre-Litigation?

The Federal Rules do not actually require the implementation of a pre-litigation hold. See Committee Note, Rule 37(f). As explained by footnote 13 in The Sedona Conference Commentary on Legal Holds (the “Commentary”):

The Advisory Committee on Civil Rules debated whether it could specify preservation obligations in the Federal Rules of Civil Procedure but ultimately decided it could not do so. Rather, the Committee opted to temper the impact of preservation obligations by protecting parties from the imposition of sanctions under the Rules for the failure to preserve certain materials in limited circumstances.

But under the circumstances here, with the City putting TxDot on notice that it was contemplating what would obviously be massive litigation and making an express demand for preservation, there really is little question that TxDot would have been taking a massive risk to ignore the City’s demand. As the Commentary puts it, The duty to preserve relevant information arises when litigation is “reasonably anticipated.” And the City’s preservation demand meets most every one of the factors listed under the Commentary’s Guideline 4, entitled, The determination of whether litigation is reasonably anticipated should be based on a good faith and reasonable evaluation of relevant facts and circumstances. These factors include:

  • The nature and specificity of the complaint or threat;
  • The position of the party making the claim;
  • Whether the threat is direct, implied or inferred;
  • The strength, scope, or value of a potential claim; and
  • Press and or industry coverage of the issue either directly pertaining to the client, or of complaints brought against someone similarly situated in the industry.

Given that it would have been difficult to impossible for TxDot to treat the City’s letter as anything but putting it on notice that litigation was “reasonably anticipated,” TxDot really had no choice but to implement a litigation hold. Not so clear is what the scope of that hold should have been, and this is where TxDot, in trying to do everything right, may have shot itself in the foot.

TxDot’s Dilemma: How to Resolve an Overbroad Pre-Litigation Hold Demand

The City’s demand for all ESI “associated with SH 121” and “its conversion from a freeway,” including to and from every possible party and from many sources (such as backup tapes) that were likely inaccessible, was unquestionably burdensome for an agency as massive as TxDot. Further, according to the complaint TxDot ultimately filed, most of that information was irrelevant since (according to TxDot) the City’s claim must be brought under the Federal Administrative Procedure Act (”APA”). According to TxDot, Under NEPA and the APA plaintiffs are generally not entitled to discovery because “courts limit their review to the agency record specifically compiled for the Environmental Re-evaluation.”

Clearly this left TxDot in a quandary: if the City had initiated litigation, then TxDot could have tried to resolve these issues at the mandatory Rule 26(f) conference and, if necessary, brought a motion for protective order under Rules 26 and 34. But because this was pre-litigation TxDot did not have a clearly defined path. The path that TxDot chose is certainly hard to criticize but, as discussed below, that choice may have ultimately contributed to its failure in court.

Even though the City Refused to Clarify or Limit its Demands, TxDot Took Extraordinary Steps to Comply before It Ever Filed It’s Plea with the Court

TxDot’s initial approach was twofold: (1) TxDot made repeated pleas to the City to clarify and narrow the subject matter of the City’s demands; and (2) TxDot immediately initiated a very thorough and aggressive effort to preserve everything. Whether out of spite or an inability to clearly articulate what it really wanted, the City refused to provide any clarification and did not even respond to several of TxDot’s letters. TxDot’s exhibits to its ultimate court filing show a huge (and certainly costly) effort to preserve all ESI. For example, within three days of receipt of the City’s demand, TxDot sent an e-mail preservation notice to approximately 200 “key players”. That notice warned the key players in part that:

TxDot has an affirmative obligation to comply with the request for preservation…. This obligation requires initiation of a litigation hold to ensure relevant documents are preserved… A ‘litigation hold’ requires intervention in the routine operation…to prevent loss of information…. Please preserve any electronic edata described in the attached letter, including all backup tapes or other storage media, whether online or offline, and refrain from overwriting or deleting information that may contain the electronic data…. This includes turning off any auto delete function on Groupwise.

Shortly after, TxDot informed the key players that the preservation should include:

[I]nformation stored not only on servers, desktop computers, and laptops, but also on a personal digital assistant (PDA - i.e. iPAQ, Blackberry, Treo), flash drive or other media storage devices. Information that is stored in more than one, or even all, of these transient media must be preserved in a secure and recoverable electronic environment. If you perform official state business related to SH 121 on a home computer or any other device, that information is also subject to the litigation hold.

A short time later, TxDot published a more formal protocol for the litigation hold and sent its key players and each of its many offices detailed instructions for the preservation of e-mails and other ESI in a segregated protected network storage area as well as procedures for the restoration of documents from backup tapes. These instructions made clear that the process was being standardized and implemented in every office in the State.

Too Little Too Late: TxDot Gets Fed Up andFinally Seeks the Court’s Assistance

After about three months of this circus, TxDot apparently came to appreciate just how massive and expensive this unfettered preservation task was going to be (according to its papers, it had already spent hundreds of hours in compliance). Finally, TxDot hit on the strategy that Ralph posited last week: On August 14, 2007, TxDot filed its Plaintiff’s Original Complaint and Request for Declaratory Relief and Protective Order in the Sherman Division of the United States District Court for the Eastern District of Texas. TxDot explained the requested relief this way:

TxDot requests the court to enter a declaratory judgment ruling that the City’s letter violates the Federal Rules of Civil Procedure and is contrary to rules governing a NEPA/APA claim in federal court. TxDot requests this court’s protection from … the broad scope and undue burden of the litigation hold and requests a declaratory judgment releasing TxDot from the litigation hold as it violates the Federal Rules….

Even though the exhibits TxDot attached certainly show the burden to someone experienced in e-Discovery for all of the reasons discussed above, TxDot’s complaint did a poor job of quantifying or otherwise explaining this burden to the court. Perhaps this is part of what led the court to take a pass on this one.

The Court Dismisses TxDot’s Complaint as “Unripe”

Magistrate Don D. Bush did not treat the City’s plea kindly. Citing to Shields v. Norton, 289 F.3d 832, 835 (5th Cir. 2002) Judge Bush noted:

A suit for declaratory relief, while allowing a party to anticipate a suit and seek a judicial resolution, must nevertheless meet this keystone limitation. In hornbook form, a declaratory action must be ripe in order to be justiciable, and is ripe only where an actual controversy exists. An actual controversy exists where a substantial controversy of sufficient immediacy and reality exists between parties having adverse legal interests. Ordinarily whether particular facts are sufficiently immediate to establish an actual controversy yields answers on a case-by-case basis. Whether a declaratory action is ripe, by its very structure, pushes against our insistence upon mature disputes. That is, it contemplates an ex ante determination of rights that exists in some tension with traditional notions of ripeness.

Judge Bush immediately hit upon the fact that it was not TxDot’s rights in the underlying environmental dispute that were at issue, but the much more amorphous concept of the scope of potential future discovery:

Notably, it is not the City’s potential claims regarding the tollway project that forms the basis of the State’s declaratory judgment action. Rather, the State seeks a declaratory judgment as to how rules of discovery and procedure might be applied by the Court to its preservation of documents in that potential suit…. As a result of the City’s litigation hold letter, the State asks this Court to determine “[w]hether it is a violation of Rules 26(f) and 34 to require an entity to broadly preserve and retain any and all electronic documents based on a required [sic] made before suit is filed.

Citing to Orix Credit Alliance, Inc., 212 F.3d at 896, 897, Judge Bush did note that a threat of litigation can indeed establish a controversy upon which declaratory judgment can be based, but he did not find that TxDot had presented such a threat since he found that the City’s letter “only states that potential exists for litigation” and not an actual threat. However, perhaps TxDot’s true failure is explained by the court’s very next paragraph:

Moreover, even if the Court were to insert itself into the pre-litigation discovery process (which it declines to do), the correspondence attached to Plaintiff’s Complaint does not evidence any concrete or developed disagreement by the parties as to the preservation of documents. A pre-enforcement action like Plaintiff’s is only ripe “if any remaining questions are purely legal … [and] further factual development” is not required for effective judicial review. The facts here are not fully developed. The dispute is abstract, “hypothetical and not suited for judicial determination.” (citations omitted)

This may be the indication of two rights making a wrong: What is Judge Bush is really saying here is that, after reviewing the exhibits, he sees: (1) a demand made by the City; (2) TxDot asking for clarification (right #1); but (2) TxDot fully complying anyway! (right #2). Since he sees a demand and the clear appearance of the ability to comply, what is the controversy? As mentioned above, TxDot does not quantify in any way the cost of its compliance efforts. All the court sees is demand and compliance, hardly the subject of a ripe dispute.

What Else Could TxDot have Done? Limited Itself to “Good Faith” Compliance.

Does this mean that Ralph’s original thesis of using a declaratory relief action to avoid an overburdensome pre-litigation demand is doomed to failure? Perhaps not. In fact, the bromide that Judge Bush offers at the very end of his decision may shed some light on the better initial course TxDot should have taken to set up the issue:

Further, while they do not specifically address pre-suit litigation hold requests, the Rules of Civil Procedure contemplate that the parties will act in good faith in the preservation and production of documents. Fed. R. Civ. P. 37. The Court encourages both parties to handle the preservation of documents in response to their respective litigation holds in such good faith. The Court declines, however, to intervene now and issue an advisory opinion as to what actions by the State would constitute good faith as to the City’s request. (emphasis added)

The court is reminding the parties that their real obligation is to act in good faith. Perhaps TxDot forgot that good faith compliance and total unquestioning compliance are not necessarily the same thing.

Part Two of the Commentary, entitled IMPLEMENTING THE LEGAL HOLD explains that:

When implementing a legal hold, it is important to recognize that the duty to preserve extends only to relevant information. While relevance is broadly defined under the Federal Rules of Civil Procedure (see Fed. R. Civ. P. 26(b)(1)), it is not without limits. As noted by one court, there is no broad requirement to preserve information that is not relevant: “Must a corporation, upon recognizing the threat of litigation, preserve every shred of paper, every e-mail or electronic document, and every backup tape? The answer is clearly, ‘no.’ Such a rule would cripple large corporations. (citing to Zubulake IV, 220 F.R.D. at 217.)

In other words, there must be some analysis of the proportionality of the potential burden with the relevance of the information sought to be preserved. Not everything necessarily need be preserved, especially if, in TxDot’s evaluation, the data was not even relevant to the anticipated dispute because either: (1) it was not part of the administrative record; or (2) it pertained to other portions of SH 121 not in dispute. While TxDot did try to engage the City in a conversation on the limits of relevance, when the City refused, TxDot simply gave in and tried to preserve everything.

Perhaps TxDot would have been better served by taking a slightly more aggressive stance. Rather than assuming there was nothing it could do without court intervention, TxDot could have responded to the City’s demand by informing them that it was so overbroad and overburdensome that TxDot would not attempt to comply but would gladly meet with the City in an effort to narrow the scope to something with which TxDot could comply. With that type of explicit notice, the City would then be placed in a quandary: either it could negotiate with TxDot (as it would have to do in litigation under Rule 26 anyway) or risk that a court would ultimately be unsympathetic with any complaint about missing documents because, after all, the City was placed on notice.

Unfortunately for TxDot,it may now have precluded itself from this lower cost option because, through its now rejected complaint, TxDot has established that in fact it can comply with the City’s request, making it less likely that a court will agree that the effort was too burdensome to impose. Thus, TxDot’s attempt to do things “right” has created the “wrong” that TxDot is stuck with a very burdensome task.

Yet another example of my favorite quote from US Congresswoman, Ambassador and playwright, Claire Booth Luce: No good deed goes unpunished.

Michael Simon