PUBLISHED
UNITED STATES COURT OF APPEALS
FOR THE FOURTH CIRCUIT
HILDA L. SOLIS, Secretary of
Labor, United States Department
of Labor,
Petitioner-Appellee,
v.
THE FOOD EMPLOYERS LABOR
RELATIONS ASSOCIATION AND UNITED No. 10-1687
FOOD AND COMMERCIAL WORKERS
PENSION FUND; THE FOOD
EMPLOYERS LABOR RELATIONS
ASSOCIATION AND UNITED FOOD AND
COMMERCIAL WORKERS HEALTH AND
WELFARE FUND,
Respondents-Appellants.
Appeal from the United States District Court
for the District of Maryland, at Baltimore.
J. Frederick Motz, Senior District Judge.
(1:10-cv-00629-JFM)
Argued: March 22, 2011
Decided: May 4, 2011
Before NIEMEYER and DAVIS, Circuit Judges,
and Ronald Lee GILMAN, Senior Circuit Judge of the
United States Court of Appeals for the Sixth Circuit,
sitting by designation.
2 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
Affirmed by published opinion. Judge Davis wrote the opin-
ion, in which Judge Niemeyer and Senior Judge Gilman con-
curred.
COUNSEL
ARGUED: Barry Steven Slevin, SLEVIN & HART, PC,
Washington, D.C., for Appellants. Ashton Schoonover Phil-
lips, UNITED STATES DEPARTMENT OF LABOR, Wash-
ington, D.C., for Appellee. ON BRIEF: Sharon M.
Goodman, Sarah E. Sanchez, SLEVIN & HART, PC, Wash-
ington, D.C., for Appellants. M. Patricia Smith, Solicitor of
Labor, Timothy D. Hauser, Associate Solicitor for Plan Bene-
fits Security, Elizabeth Hopkins, Counsel for Appellate and
Special Litigation, UNITED STATES DEPARTMENT OF
LABOR, Washington, D.C., for Appellee.
OPINION
DAVIS, Circuit Judge:
This appeal arises out of the district court’s grant of a peti-
tion by the Secretary of the United States Department of
Labor ("DOL") to enforce administrative document subpoe-
nas. The Secretary served the subpoenas on two multiem-
ployer employee benefit plans, the Food Employers Labor
Relations Association and United Food and Commercial
Workers Pension Fund ("Pension Fund") and the Food
Employers Labor Relations Association and United Food and
Commercial Workers Health and Welfare Fund ("Health
Fund") (collectively the "Funds"), as part of an investigation
undertaken pursuant to § 504(a)(1) of the Employee Retire-
ment Income Security Act of 1974 ("ERISA"), 29 U.S.C.
§ 1134(a)(1), into possible mismanagement of fund assets.
Claiming attorney-client and work product privileges, the
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 3
Funds objected to the production of some responsive docu-
ments. After the Secretary sought judicial enforcement of the
subpoenas, the district court ordered the Funds to produce the
withheld documents, applying the fiduciary exception to the
claimed privileges. The Funds timely appealed. Finding no
error in the district court’s order enforcing the subpoenas, we
affirm.
I.
The DOL investigation into the management of the Funds
arises out of a $10.1 million loss of ERISA plan assets as a
result of the Funds’ investments in entities related to Bernard
L. Madoff, who has since been convicted of securities fraud
for organizing a multi-billion dollar Ponzi scheme.1
Specifically, the Funds indirectly invested in Bernard L.
Madoff Investment Securities, LLC ("BMIS"), Madoff’s
investment firm. According to affidavits provided by the
Funds, the Board of Trustees for the Pension Fund inter-
viewed a number of investment hedge fund of funds2 in May
2004. The Board discussed the options with the Fund’s invest-
ment consultants and decided to accept the consultants’ rec-
ommendation to invest approximately three percent of the
Fund’s assets in the Meridian Diversified ERISA Fund Ltd.
("Meridian Fund"). The Meridian Fund’s investment manager
in turn invested a portion of those assets in the Rye Broad
Market XL Portfolio Limited Fund. The investment advisors
for the Rye Broad Market Fund hired BMIS to manage a por-
tion of the Rye Broad Market Fund’s assets. As of December
31, 2008, of the Pension Fund’s $675 million in assets,
approximately $41 million, or 6%, was invested in the Merid-
1
See Judgment (Doc. #100), United States v. Madoff, Action No. 1:09-
CR-0213-DC (S.D.N.Y. June 16, 2009). Madoff was the founder of Ber-
nard L. Madoff Investment Securities, LLC.
2
A hedge fund of funds is an investment vehicle with shares in multiple
hedge funds, usually in order to diversify risk.
4 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
ian Fund, of which approximately $2.5 million, or 0.4% of the
Pension Fund’s total assets, was invested in the Rye Broad
Market Fund.
In a similar fashion, in May 2005, the Board of Trustees of
the Health Fund, based on the recommendation of its invest-
ment consultant, invested $29 million in the Meridian Fund.
As with the assets of the Pension Fund, the Meridian Fund
invested a portion of the Health Fund’s assets in the Rye
Broad Market Fund, of which BMIS managed a portion. As
of December 31, 2008, of the Health Fund’s $97.5 million in
assets, $7.6 million, or 7.8%, was invested in the Meridian
Fund, of which $500,000, or 0.5% of the Health Fund’s total
assets, was invested in the Rye Broad Market Fund. As a
result of losses associated with these Madoff-related invest-
ments, the Funds are members of a plaintiff-class in a suit
against Meridian.
DOL’s Employee Benefit Security Administration
("EBSA") conducts audits pursuant to § 504(a)(1) of ERISA,
which authorizes DOL to investigate whether a violation of
Title I of ERISA or regulations or orders issued thereunder
has occurred or is about to occur. 29 U.S.C. § 1134(a)(1). On
April 15, 2009, DOL issued two subpoenas duces tecum
requesting documents relating to the administration of the
Funds. The request covered a range of the Funds’ activities,
but focused on information concerning the decision to commit
assets to Madoff-related investments.
On April 16, 2009, the Funds provided documents partially
responsive to the subpoenas, but redacted portions of some
documents and wholly withheld some others, claiming they
were protected by attorney-client and work product privileges.
DOL and the Funds negotiated over the next few months
regarding the scope of the subpoenas. In response to the
Funds’ concerns, DOL agreed to limit the time period covered
by the request and to narrow the scope of 29 of the 38 sub-
poena specifications. Throughout these discussions, EBSA
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 5
maintained that the Funds were not permitted to withhold
documents based on attorney-client or work product privi-
leges. The negotiations eventually broke down, however, and,
on March 10, 2010, the Secretary filed a petition in federal
district court to obtain compliance with the subpoenas.
Following briefing and a hearing, the district court granted
the Secretary’s petition on May 19, 2010. In reaching its deci-
sion, the district court applied the fiduciary exception to the
privileges asserted by the Funds. The district court ordered the
Funds to comply with the subpoenas and produce documents
dealing with: (1) Board of Trustees and Policy Committee
meeting minutes for the Funds; (2) documents referred to or
distributed during these meetings; (3) notes taken at these
meetings; (4) any correspondence relating to the Funds’
Madoff-related investments; and (5) documents outside the
four categories listed above that the Funds withheld based on
privilege claims. In accordance with the Secretary’s offer to
exempt certain categories from production, the district court
excluded the production of documents dealing exclusively
with benefits disputes, benefits claims, subrogation agree-
ments, delinquent contributions, withdrawal liability, or col-
lection actions involving employers. The district court’s order
also excluded information covered by the attorney-client priv-
ilege or work product protection in documents dated after ser-
vice of the subpoenas or prepared in connection with the
current investigation.
Notably, the district court addressed the Funds’ concerns
about the ability of third parties to access the information dis-
closed in response to the subpoenas, finding that "compliance
with [the] Order does not waive any attorney-client or work
product privilege with respect to any third party" and ordering
DOL to notify the Funds of any requests received under the
Freedom of Information Act, 5 U.S.C. § 552, for documents
produced under the order. J.A. 85. The Funds produced the
documents required by the district court’s order and filed a
6 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
timely notice of appeal. The Funds seek reversal of the district
court’s order and the return of the privileged documents.3
II.
Recognizing that Congress delegated enforcement mecha-
nisms to agency discretion, this court has emphasized that the
district court’s role in a proceeding to enforce an administra-
tive subpoena is "sharply limited." EEOC v. City of Norfolk
Police Dept., 45 F.3d 80, 82 (4th Cir. 1995) (internal quota-
tion marks omitted); see also EEOC v. Am. & Efird Mills,
Inc., 964 F.2d 300, 303 (4th Cir. 1992). To enforce an admin-
istrative subpoena, the district court need only find that (1) the
agency is authorized to make such an investigation; (2) the
agency has complied with statutory requirements of due pro-
cess; and (3) the materials requested are relevant. See, e.g.,
United States v. Am. Target Adver., Inc., 257 F.3d 348, 351
(4th Cir. 2001); Am. & Efird Mills, 964 F.2d at 302-03. If the
agency can make such a showing, "the court must enforce the
subpoena unless the party being investigated demonstrates
that the subpoena is unduly burdensome." EEOC v. Maryland
Cup Corp., 785 F.2d 471, 475-76 (4th Cir. 1986) (citing FTC
v. Texaco, Inc., 555 F.2d 862, 882 (D.C. Cir. 1977) (en
banc)). This court reviews the factual findings underlying a
district court’s enforcement of an agency subpoena for clear
error. EEOC v. Lockheed Martin Corp., Aero & Naval Sys-
tems, 116 F.3d 110, 113 (4th Cir. 1997). We review questions
3
We note that the Funds’ production of the documents in compliance
with an administrative subpoena does not affect our jurisdiction over this
appeal. See Church of Scientology of California v. United States, 506 U.S.
9, 15 (1992) (holding appeal that followed compliance with district court
order enforcing IRS summons not moot because "if the summons were
improperly issued or enforced a court could order that the IRS’ copies of
the tapes be either returned or destroyed"); Reich v. National Eng’g &
Contracting Co., 13 F.3d 93, 97-98 (4th Cir. 1993) (finding companies’
continuing privacy interest in documents produced in compliance with dis-
trict court order enforcing agency subpoenas ensured a live controversy on
appeal from the order).
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 7
of law de novo. See Maryland Cup Corp., 785 F.2d at 475-76
(internal citations omitted).
On appeal, the Funds do not challenge the Secretary’s
authority to issue the subpoenas; nor do they raise due process
or relevance concerns. Instead, they argue that the attorney-
client and work product privileges protect some of the materi-
als requested by the Secretary from disclosure and that the
district court erred in applying the fiduciary exception to
override these privileges. This court reviews de novo a district
court’s decision regarding the scope and applicability of an
asserted privilege "to the extent the court’s holding rests on
application of controlling legal principles to the facts." In re
Allen, 106 F.3d 582, 601 (4th Cir. 1997); see also In re Grand
Jury Subpoena, 341 F.3d 331, 334 (4th Cir. 2003). We
address in turn the Funds’ claims of attorney-client and work
product privilege.
A.
Intended to encourage "full and frank communication
between attorneys and their clients," the attorney-client privi-
lege is "the oldest of the privileges for confidential communi-
cations known to the common law." Upjohn Co. v. United
States, 449 U.S. 383, 389 (1981). Nonetheless, the privilege
is not absolute, and this court has noted that it "is to be strictly
confined within the narrowest possible limits consistent with
the logic of its principle." United States v. Aramony, 88 F.3d
1369, 1389 (4th Cir. 1996) (internal citations and quotation
marks omitted).
Courts have recognized one such limit in the context of
fiduciary relationships. Rooted in the common law of trusts,
the fiduciary exception is based on the rationale that the bene-
fit of any legal advice obtained by a trustee regarding matters
of trust administration runs to the beneficiaries. Consequently,
"trustees . . . cannot subordinate the fiduciary obligations
owed to the beneficiaries to their own private interests under
8 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
the guise of attorney-client privilege." Riggs Nat. Bank of
Washington, D.C. v. Zimmer, 355 A.2d 709, 714 (Del. Ch.
1976).
This principle has been applied to fiduciary relationships
beyond the traditional trust context. See, e.g., Garner v. Wol-
finbarger, 430 F.2d 1093, 1103-04 (5th Cir. 1970) (balancing
potential costs and benefits of disclosure to hold that, in
shareholder derivative action against corporate officers,
"availability of the privilege be subject to the right of the
stockholders to show cause why it should not be invoked in
the particular instance"). Several of our sister circuits, more-
over, have recognized the exception to assertions of attorney-
client privilege by ERISA fiduciaries. See, e.g., Bland v. Fia-
tallis N. Am. Inc., 401 F.3d 779, 787-88 (7th Cir. 2005) (rec-
ognizing fiduciary exception but finding it did not apply to
communications relating to non-fiduciary actions, including
amendments to plan benefits); United States v. Mett, 178 F.3d
1058, 1062 (9th Cir. 1999) (finding fiduciary exception
applied in ERISA context, but did not extend to "any advice
that a fiduciary obtains in an effort to protect herself from
civil or criminal liability"); United States v. Doe, 162 F.3d
554, 557 (9th Cir. 1999) (applying fiduciary exception to
claims of privilege in context of ERISA enforcement action);
Becher v. Long Island Lighting Co., 129 F.3d 268, 272 (2d
Cir. 1997) (recognizing fiduciary exception to attorney-client
privilege in ERISA context was limited to fiduciary matters);
Wildbur v. ARCO Chem. Co., 974 F.2d 631, 645 (5th Cir.
1992) (recognizing fiduciary exception but finding it did not
apply to communications that were "made for the purpose of
defending the pending lawsuit and did not deal with plan
administration"). Cf. Wachtel v. Health Net, Inc., 482 F.3d
225, 234 (3d Cir. 2007) (describing evolution of fiduciary
exception in ERISA context and finding exception did not
reach communications of ERISA plan insurer with plan attor-
neys regarding benefit claims).
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 9
Analogizing the ERISA fiduciary’s role to the role of the
trustee at common law,4 these courts have relied on one of
two related rationales. Applying the reasoning of the Fifth
Circuit in Garner, some courts have concluded that the
ERISA fiduciary’s duty to act in the exclusive interest of ben-
eficiaries supersedes the fiduciary’s right to assert attorney-
client privilege. See, e.g., Bland, 401 F.3d at 787; Becher, 129
F.3d at 271-72. Other courts, however, have reasoned that the
ERISA fiduciary, as a representative of the beneficiaries, is
not the real client in obtaining advice regarding plan adminis-
tration and "thus never enjoyed the privilege in the first
place." Mett, 178 F.3d at 1063 (internal citations omitted). See
Doe, 162 F.3d at 556; Wildbur, 974 F.2d at 645; Washington-
Baltimore Newspaper Guild, Local 35 v. Washington Star
Co., 543 F. Supp. 906, 909 (D.D.C. 1982). Under either ratio-
nale, "where an ERISA trustee seeks an attorney’s advice on
a matter of plan administration and where the advice clearly
does not implicate the trustee in any personal capacity, the
trustee cannot invoke the attorney-client privilege against the
plan beneficiaries." Mett, 178 F.3d at 1064.
This court has not previously examined the fiduciary
exception in the context of ERISA, though several district
courts in this circuit have addressed the issue.5 See, e.g.,
4
Reading ERISA in light of common law trust principles comports with
the Supreme Court’s guidance on interpreting ERISA. See Firestone Tire
& Rubber Co. v. Bruch, 489 U.S. 101, 110 (1989) (analyzing trust law to
determine the appropriate standard under which to review an ERISA fidu-
ciary’s denial of benefits).
5
We recognized the fiduciary exception in the context of a corporate
shareholder derivative action in Sandberg v. Virginia Bankshares, Inc., in
which we adopted the Fifth Circuit’s holding and rationale from Garner,
and found that it "provide[d] a sound basis for balancing a corporation’s
need to communicate confidentially with its attorneys against the share-
holders’ interests as beneficiaries of a fiduciary relationship." 979 F.2d
332, 352 (4th Cir. 1992). However, the Sandberg opinion was vacated
pursuant to a joint agreement by the parties in that case. 1993 WL 524680
(4th Cir. Apr. 7, 1993).
10 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
Tatum v. R.J. Reynolds Tobacco Co., 247 F.R.D. 488, 495
(M.D.N.C. 2008) (recognizing "the existence of a fiduciary
exception where an ERISA plan administrator asserts
attorney-client privilege to withhold from plan beneficiaries
communications related to matters on which a fiduciary duty
is owed to the beneficiaries"); Coffman v. Metro. Life Ins. Co.,
204 F.R.D. 296, 299 (S.D.W. Va. 2001) (finding that fidu-
ciary exception required disclosure of documents dealing with
plan administration to ERISA trust beneficiaries). Persuaded
by the reasoning set forth in the opinions of our sister circuits
and the lower courts within our circuit, we find that the fidu-
ciary exception to attorney-client privilege extends to commu-
nications between an ERISA trustee and a plan attorney
regarding plan administration.
In now recognizing the fiduciary exception, we acknowl-
edge that it is not without limits. The exception will not apply,
for example, to a fiduciary’s communications with an attorney
regarding her personal defense in an action for breach of fidu-
ciary duty. See Mett, 178 F.3d at 1064. Similarly, communica-
tions between ERISA fiduciaries and plan attorneys regarding
non-fiduciary matters, such as adopting, amending, or termi-
nating an ERISA plan, are not subject to the fiduciary excep-
tion. See Bland, 401 F.3d at 787-88.
In the context of the shareholder derivative action, the fidu-
ciary exception also has been limited by a requirement that
one seeking to overcome a privilege show good cause. See
Garner, 430 F.2d at 1101, n.17, 1103-04 (rejecting unquali-
fied fiduciary exception out of concern, in part, that corpora-
tions may be "vulnerable to suit by shareholders whose
interests or intention may be inconsistent with those of other
shareholders"). In the context of the Secretary’s investigative
or enforcement activity under ERISA, however, the concerns
that inspired the good cause requirement in the corporate con-
text do not obtain, as "there exists no legitimate need for a
trustee to shield his actions from those whom he is obligated
to serve." Washington Star, 543 F. Supp. at 909, n.5; see also
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 11
In re Occidental Petrol. Corp., 217 F.3d 293, 298 (5th Cir.
2000) (noting that the Garner court’s concern regarding
potential for conflicting interests in corporate context was
"not triggered" where "plaintiffs seek discovery only to
uphold Occidental’s fiduciary duties to the [Employee Stock
Ownership Plan]" of which plaintiffs are beneficiaries). Cf.
Martin v. Valley Nat’l Bank, 140 F.R.D. 291, 326 (S.D.N.Y.
1991) (noting that "common-law principles governing
required disclosure of trustee communications do not impose
a ‘good cause’ limitation on the beneficiary’s access to this
type of information, and neither Garner nor its progeny offer
the slightest suggestion as to why that long-settled principle
ought now to be set aside"). Several other courts that have
addressed the scope of the fiduciary exception in the ERISA
context have also refused to apply a good cause requirement.
See Mett, 178 F.3d at 1063 (applying fiduciary exception
without reference to good cause requirement); Wildbur, 974
F.2d at 645 (same); Becher, 129 F.3d at 272 (same); Tatum,
247 F.R.D. at 495 (expressly rejecting Garner’s good cause
analysis); Henry v. Champlain Enters., Inc., 212 F.R.D. 73,
83-86 (N.D.N.Y. 2003) (applying good cause requirement to
plaintiffs’ shareholder derivative claim but not to their ERISA
claims); Hudson v. Gen. Dynamics Corp., 186 F.R.D. 271,
274 (D. Conn. 1999) (finding good cause not required in
ERISA context); Washington Star, 543 F. Supp. at 909 n.5
(same).6 Indeed, to our knowledge, only one thirty-year-old
6
The Funds’ attempt to portray the good cause showing as governed by
our decision in Sandberg is misplaced. Even apart from the fact that we
vacated our Sandberg opinion, Sandberg arose in the context of a corpo-
rate shareholder derivative action. 979 F.2d at 352. As discussed supra,
the application of the fiduciary exception in the ERISA context presents
different concerns from those involved in the corporate context, and courts
have continued to impose a good cause showing on the latter but not the
former. Nor does our decision in Faircloth v. Lundy Packing Co., 91 F.3d
648 (4th Cir. 1996), support the imposition of a good cause requirement
here. Faircloth dealt with provisions in ERISA that require certain auto-
matic disclosures, and made no mention of the fiduciary exception what-
soever. Id. at 655. Accordingly, it has little bearing on our determination
of the scope of that exception.
12 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
district court opinion has applied the good cause requirement
to limit the fiduciary exception in the ERISA context. See
Donovan v. Fitzsimmons, 90 F.R.D. 583, 586-87 (N.D. Ill.
1981). We do not find that case persuasive.
Even courts that have refused to impose a good cause
requirement, however, have maintained the limits imposed by
the fiduciary relationship itself. In particular, non-fiduciary
communications and a trustee’s personal legal advice will not
be subject to the exception. Thus, the application of the fidu-
ciary exception to any particular communication remains a
matter of "context and content." Mett, 178 F.3d at 1064;
Tatum, 247 F.R.D. 495.
In sum, we conclude that application of the fiduciary
exception to the attorney-client privilege in the context of a
subpoena issued by the Secretary of Labor under ERISA does
not require a showing of good cause; instead, its application
turns on the context and content of the individual communica-
tions at issue.
Turning to the case before us, the Funds argue that the dis-
trict court erred in applying the fiduciary exception to their
claim of attorney-client privilege in the context of the Secre-
tary’s investigation. Courts have held, and the parties agree,
that the fiduciary exception extends to the Secretary acting on
behalf of beneficiaries in the context of an ERISA enforce-
ment action. See Doe, 162 F.3d at 557 (recognizing that the
government may invoke the exception "when it is seeking to
vindicate the rights of ERISA beneficiaries"); Mett, 178 F.3d
at 1064 n.9; Valley Nat. Bank, 140 F.R.D. at 325-26 (noting
that "any communications by the Bank with the firm seeking
advice as to the administration of the Trust should be disclos-
able to the Secretary, who is suing on behalf of the beneficia-
ries of the Trust"); Fitzsimmons, 90 F.R.D. at 586-87 (finding
that "at this point, both DOL and the plan’s participants have
exactly the same interest, securing complete disclosure in
order to ferret out and discover any past wrongdoing affecting
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 13
the Fund"); Wsol v. Fiduciary Mgmt. Assoc., Inc., 1999 WL
1129100 (N.D. Ill. Dec. 7, 1999). Thus, although the Funds
concede that the fiduciary exception may apply to lawsuits
filed by DOL under § 502 of ERISA, they argue that it should
not extend to a DOL compliance investigation under § 504 of
ERISA.7 We disagree.
Attempting to distinguish the Secretary’s role under the two
provisions, the Funds argue that, under § 504, the Secretary
"acts as a regulator and not as a statutory designee seeking
recovery on behalf of the Funds’ participants." Appellant’s
Br. 20. The Funds note that the two actions "differ fundamen-
tally in terms of evidentiary support, scope, and the availabil-
ity of procedural safeguards." Id. at 22. Further, the Funds
contend that, in a compliance audit, the Secretary’s interests
may not align with those of the plan’s beneficiaries, speculat-
ing that a potential for greater risk of public disclosure of dis-
closed documents could harm beneficiary interests. The
district court rejected these arguments, however, finding that
the fiduciary exception applied in both contexts because "the
timing of the proceeding [does not make] any difference."
J.A. 81-82.
We can discern no principled basis on which to distinguish
between enforcement actions and investigations in the appli-
cation of the fiduciary exception; accordingly, we will not dis-
turb the judgment of the district court.
7
Section 504 authorizes the Secretary, "in order to determine whether
any person has violated or is about to violate any provision of this sub-
chapter or any regulation or order thereunder (1) to make an investigation,
and in connection therewith to require the submission of reports, books,
and records . . . ." 29 U.S.C. § 1134(a). Sec. 502 authorizes the Secretary
to bring a civil action in order "(A) to enjoin any act or practice which vio-
lates any provision of this subchapter, or (B) to obtain other appropriate
equitable relief. . . ." 29 U.S.C. § 1132(a)(5). At oral argument, counsel for
the Funds conceded that the fiduciary exception would apply if the Secre-
tary’s request had come in the context of a § 502 enforcement action.
14 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
The Secretary’s investigative role under § 504 is directly
related to her enforcement powers under § 502. The Secretary
correctly points out that, as a practical matter, effective
enforcement actions under § 502 will very often depend on
thorough investigations and audits under § 504. Furthermore,
it is unclear how the interests the Secretary seeks to protect
in an enforcement action differ from those protected in an
investigation. In both, she seeks to protect the interests of the
beneficiaries and to "secur[e] complete disclosure in order to
ferret out and discover any past wrongdoing affecting the
Fund." Fitzsimmons, 90 F.R.D. at 587. See also Doe, 162 F.3d
at 557 (acknowledging that the government "stand[s] in the
shoes of beneficiaries when it is investigating and prosecuting
malfeasance in the administration of an ERISA fund" in grand
jury proceedings) (emphasis added).8 Contrary to the Funds’
contention, the potential for public disclosure in the investiga-
tion context does not harm beneficiary interests any more than
in the enforcement context. And, while the potential for dis-
closure under a Freedom of Information Act request may be
somewhat burdensome, the Secretary has cited several avail-
able exceptions which make the likelihood of disclosure pur-
suant to such a request remote. Moreover, courts can fashion
an order to preclude subsequent third-party waiver claims and
minimize the risk of disclosure under FOIA, precisely as the
district court did in this very case. J.A. 85. At bottom, the
Funds’ attempts to distinguish DOL actions under § 502 from
§ 504 are unpersuasive.
8
While circumstances may arise in which the Secretary’s interests no
longer align with those of plan beneficiaries, that is not the case before us.
Accord Fitzsimmons, 90 F.R.D. at 586-87 (accepting that the interests of
the Secretary and the beneficiaries might diverge at some later date "with
DOL more interested in establishing a broad precedent to deter pension
plan maladministration and the beneficiaries more interested in securing
maximum restitution to the Fund for the payment of benefits" but finding
"no principled basis" for preventing the Secretary from invoking the fidu-
ciary exception "given the identity of interests" in the case at bar).
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 15
Bolstering our conclusion is the Secretary’s well-
established subpoena power in the context of investigating
potential ERISA violations. See, e.g., Donovan v. National
Bank of Alaska, 696 F.2d 678, 684 (9th Cir. 1983) (finding
broad investigative purpose sufficient to enforce subpoena);
Donovan v. Shaw, 668 F.2d 985, 989 (8th Cir. 1982) (recog-
nizing that agency "need not make any factual showing that
a law has been violated as a condition precedent to enforce-
ment" of subpoena). Although the Funds argue that this broad
investigatory subpoena power further distinguishes the Secre-
tary’s roles under § 502 and § 504, respectively, it instead
appears to underscore that Congress, in both provisions,
sought to provide the Secretary with a wide range of tools to
protect the interests of beneficiaries and participants.
Finally, we note that the facts of this case support the dis-
trict court’s disposition. The documents which the Funds were
required to disclose included Board of Trustee meeting min-
utes, handwritten notes distributed and taken during the meet-
ings, and correspondence that concerned the Madoff-related
investments. All of these documents appear clearly to relate
to the Funds’ administration, information which ERISA trust-
ees have a fiduciary obligation to disclose in response to a
subpoena from plan beneficiaries provided it does not involve
a trustee’s own legal defense.9 See Becher, 129 F.3d at 271-
72; Wildbur, 974 F.2d at 645; see also Mett, 178 F.3d at 1064
(recognizing this obligation extends to the government acting
"in the beneficiaries’ stead"). If the Funds are concerned that
there are privileged documents not subject to the fiduciary
exception in this array, they have failed to identify which doc-
uments should remain privileged and why. See United States
v. Jones, 696 F.2d 1069, 1072 (4th Cir. 1982) (noting that
burden rests with party claiming privilege to demonstrate its
9
In this circuit, a beneficiary is entitled to disclosure on demand, i.e.,
without a subpoena, of only those materials listed in ERISA, 29 U.S.C.
§ 1024(b)(4). See Faircloth v. Lundy Packing Co., 91 F.3d 648, 653-54
(4th Cir. 1996).
16 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
applicability to individual communications); Tatum, 247
F.R.D. at 493-95 (applying fiduciary exception to some, but
not all, documents after examining detailed privilege log for
"context and content"). Here, the Funds did not specify indi-
vidual communications to which the privilege applied or sub-
mit a privilege log for the district court’s assessment.
Accordingly, the district court properly applied the fiduciary
exception to the documents requested by the Secretary that
related to fund administration.
Because we find that the fiduciary exception applies to the
Funds’ claims of attorney-client privilege and no good cause
showing is required in the ERISA context, we find no error
in the district court’s order.
B.
We turn next to the Funds’ arguments concerning the attor-
ney work product privilege. Distinct from the attorney-client
privilege, the work product doctrine belongs to the attorney
and confers a qualified privilege on documents prepared by an
attorney in anticipation of litigation. Hickman v. Taylor, 329
U.S. 495, 509-14 (1947); In re Grand Jury Proceedings,
Thur. Special Grand Jury Sept. Term, 1991, 33 F.3d 342, 348
(4th Cir. 1994); Duplan Corp. v. Moulinage et Retorderie de
Chavanoz, 487 F.2d 480, 483, n.12 (4th Cir. 1973).
"[M]aterials prepared in the ordinary course of business or
pursuant to regulatory requirements or for other non-litigation
purposes" do not constitute "documents prepared in anticipa-
tion of litigation" protected by work product privilege. Nat’l
Union Fire Ins. Co. v. Murray Sheet Metal Co., 967 F.2d 980,
984 (4th Cir. 1992). As in the case of attorney-client privi-
lege, the party claiming the protection bears the burden of
demonstrating the applicability of the work product doctrine.
In re Grand Jury, 33 F.3d at 353.
The Funds argue that the district court erred in finding that
the fiduciary exception extends to require disclosure of mate-
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 17
rial covered by the work product doctrine.10 In support of their
contention, the Funds point to cases in which other courts
have refused to apply the fiduciary exception to attorney work
product. See, e.g., Jicarila Apache Nation v. the United States,
88 Fed. Cl. 1, 11 (2009) (refusing to apply fiduciary exception
to work product privilege in action by tribe against United
States for alleged mismanagement of tribal trust funds); Cox
v. Adm’r U.S. Steel & Carnegie, 17 F.3d 1386, 1423 (11th
Cir. 1994) (refusing to apply exception in action by union
members against union); In re Int’l Sys. & Controls Corp.
Sec. Litig., 693 F.2d 1235, 1239 (5th Cir. 1982) (refusing to
apply exception in shareholder derivative action because "mu-
tuality of interest" that existed to support attorney-client privi-
lege was destroyed once there was "sufficient anticipation of
litigation to trigger the work product immunity"). The Funds
also rely on our decision in Sandberg, in which we found that
the fiduciary exception did not apply to work product protec-
tion in the context of a shareholder derivative action. 979 F.2d
at 355, n.22. As we have noted, however, our decision in
Sandberg was vacated, see 1993 WL 524680, and does not
bind us. Moreover, Sandberg, along with the other cases cited
by the Funds, did not arise in the ERISA context; rather, these
cases involved corporate shareholder actions, union actions,
and actions relating to federal tribal authorities. The relevance
of these decisions to the application of the fiduciary exception
to work product protection in the ERISA context is question-
able at best.
As we explained in our discussion of attorney-client privi-
lege supra, the ERISA context differs from the corporate con-
text and more closely involves fiduciary duties owed directly
to participants and beneficiaries. Applying the logic of com-
10
The district court expressly excluded documents "prepared in connec-
tion with the Secretary’s investigation of the Plans" and those prepared
after March 24, 2009, in connection with the Meridian Fund litigation.
J.A. 84. The Funds nevertheless contend that the district court’s order
reaches protected materials.
18 SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC.
mon law trusts from which the fiduciary exception to the
attorney-client privilege was extrapolated to the ERISA con-
text, several courts have found that the exception similarly
applies to the work product doctrine, reasoning that a trustee’s
attorney should not withhold work product from the actual
client, i.e. the trust beneficiaries. See Everett v. USAir Group,
Inc., 165 F.R.D. 1, 5 (D.D.C. 1995) (finding that ERISA fund
attorneys may not "shield their attorney work product from
their own ultimate clients, the plan beneficiaries . . . insofar
as [documents] were prepared in anticipation of litigation on
behalf of the plan beneficiaries"); Valley Nat’l Bank, 140
F.R.D. at 320-21 (rejecting work product protection claim by
ERISA fund attorneys in context of DOL suit on behalf of
fund participants); see also Cobell v. Norton, 213 F.R.D. 1, 13
(D.D.C. 2003) (finding the work product doctrine "applicable
only where the material is developed exclusively for purposes
other than the benefit of trust beneficiaries, i.e., solely to aid
in litigation") (emphases added). Cf. Aull v. Cavalcade Pen-
sion Plan, 185 F.R.D. 618, 626 (D. Colo. 1998) (finding that
"when the documents at issue are related to allegedly
improper actions of ERISA fiduciaries, discovery often is per-
mitted despite a claim of work product privilege," but refus-
ing to reach the issue of whether fiduciary exception applied);
Fitzsimmons, 90 F.R.D. at 587-88 (requiring disclosure of
attorney work product relating to ERISA trustees’ investment
decisions, subject to good cause showing, "lest the work-
product immunity swallow up the [fiduciary] exception in its
entirety"). These persuasive authorities demonstrate that there
is no legitimate basis on which to distinguish between the two
privileges in the application of the fiduciary exception in the
ERISA context.
In any event, however, because of the way the Funds have
chosen to litigate this action— by failing to provide privilege
logs or identify the litigation for which specific documents
were prepared— we see no reason to reach the issue of
whether the work product doctrine is subject to the fiduciary
exception. As the party claiming privilege, the Funds bear the
SOLIS v. THE FOOD EMPLOYERS LABOR RELATIONS ASSOC. 19
burden of demonstrating the applicability of the privilege to
specific documents. In re Grand Jury, 33 F.3d at 353.
Because the Funds have failed to carry their burden to demon-
strate the applicability of the work product doctrine, we have
no reason to disturb the district court’s judgment.
III.
For the foregoing reasons, the district court’s order granting
the Secretary’s petition to enforce is
AFFIRMED.