Versata Development Group, Inc. v. SAP America, Inc.Versata Development Group, Inc. v. SAP America, Inc.
Lead Opinion
Opinion for the court filed by Circuit Judge PLAGER.
Opinion concurring in part and dissenting in part filed by Circuit Judge HUGHES.
IntROduction
This is a covered business method (“CBM”) patent case, under § 18 of the Leahy-Smith America Invents Act (“AIA”), Pub.L. No. 112-29, 125 Stat. 284
SAP requested that the USPTO institute review of the validity of certain claims in U.S. Patent No. 6,553,350 (“'350 patent”). The '350 patent is owned by the appellant, Versata Development Group, Inc. (“Versata”), who had sued SAP for infringing the patent. In its petition to the USPTO, SAP alleged that the patent was a covered business method patent.
Covered business method patents are subject to the special provisions of AIA § 18. See
In addition to the merits of the decision rendered by the PTAB (which held the claims at issue invalid), the parties to the appeal dispute several predicate issues. These include:
• if the PTAB makes an initial determination under § 18 of the AIA that the patented invention qualifies for “covered business method” treatment under § 18, may a court review that issue when reviewing as part of a final written decision the invalidation of claims under the authority of § 18?
• if the answer is yes, for purposes of post-grant review by the USPTO howis the term “covered business method patent” to be understood, and does the patent at issue here qualify as a CBM patent?
• if the PTAB correctly determines that under § 18 of the AIA a patent comes within the definition of a CBM patent, what are the criteria for determining whether the patent is excluded from review under § 18 because the patent falls within the statutorily-excepted category of “technological invention,” and hów do those criteria apply to the '850 patent?
• if, in deciding the merits of the case— the validity of the challenged claims in the patent — the PTAB is called upon to engage in claim construction, does the PTAB apply the USPTO’s general rule of the “broadest reasonable interpretation,” or does it apply the judicial standard of the “one correct construction”?
• finally, on appeal at the final written decision stage to this court, during which we must decide whether the PTAB applied the substantive tests for validity correctly, may a court determine whether as an initial matter the PTAB chose the correct substantive tests to apply, and did the PTAB apply them correctly here?
After determining the answers to these queries, contested by the parties, as explained below, we address their application to the '350 patent at issue.
Background
The '350 Patent
Versata owns the '350 patent, entitled “method and apparatus for pricing products in multi-level product and organizational groups.” '350 patent, col. 1, ll. 1-3. The “invention operates under the paradigm of WHO (the purchasing organization) is buying WHAT (the product).” Id. at col. 3, ll. 24-25. An example of the WHO/WHAT paradigm, known in the pri- or art according to the patent, is depicted in Figure 1 of the '350 patent, reproduced below:
[[Image here]]
See id. at col. 4, ll. 17-18.
The '350 patent, however, states that prior art pricing tables for WHO/WHAT required large data tables. See id. at col. 1, ll. 52-59. The patent is said to improve upon the prior art and reduce the need for
[[Image here]]
See id. at col. 4, ll. 24-25.
Similarly, a product group hierarchy is defined that can be applied to products (WHAT). Id. at col. 3, ll. 41-42. Pricing information is then associated with the customer and product groups. Id. at col. 8, ll. 17-25. Special pricing adjustments may be defined as applying to all members of a specific customer group or a specific product group. Id. at col. 3, ll. 26-49.
We are concerned with claims 17 and 26-29. Claim 17 recites a “method for determining a price of a product offered to a purchasing organization” comprising certain steps. Id. at col. 20, 1. 66 — col. 21, 1. 29. Claim 26 recites a “computer readable storage media comprising: computer instructions to implement the method of claim 17.” Id. at col. 21, ll. 61-62. Claim 27 recites a “computer implemented method for determining a price of a product offered to a purchasing organization” comprising certain steps. Id. at col. 21, 1. 63— col. 22, 1.12. Claim 28 recites a “computer readable storage media comprising: computer instructions to implement the method of claim 27.” Id. at col. 22, ll. 13-14. Claim 29 recites an “apparatus for determining a price of a product offered to a purchasing organization” comprising certain limitations. Id. at col. 22, ll. 15-35.
Claim 17 is representative:
A method for determining a price of a product offered to a purchasing organization comprising: arranging a hierarchy of organizational groups comprising a plurality of branches such that an organizational group below a higher organizational group in each of the branches is a subset of the higher organizational group; arranging a hierarchy of product groups comprising a plurality of branches such that a product group below a higher product group in each of the branches in a subset of the higher product group; storing pricinginformation in a data source, wherein the pricing information is associated, with (i) a pricing type, (ii) the organizational groups, and (iii) the product groups; retrieving applicable pricing information corresponding to the product, the purchasing organization, each product group above the product group in each branch of the hierarchy of product groups in which the product is a member, and each organizational group above the purchasing organization in each branch of the hierarchy of organizational groups in which the purchasing organization is a member; sorting the pricing information according to the pricing types, the product, the purchasing organization, the hierarchy of product groups, and the hierarchy of organizational groups; eliminating any of the pricing information that is less restrictive; and determining the product price using the sorted pricing information.
Id. at col. 20, l. 66—col. 21, l. 29.
Prior Litigation
On April 20, 2007, Versata, along with Versata Software, Inc. and Versata Computer Industry Solutions, Inc., sued SAP for, inter alia, infringement of the '350 patent in the U.S. District Court for the Eastern District of Texas. The case proceeded to trial, and a jury found infringement and awarded damages. The district court upheld the infringement verdict but reversed other rulings unrelated to the '350 patent, resulting in a new trial on damages. A jury then found that SAP’s post-patch software continued to infringe and awarded lost-profits damages and reasonable royalty damages. The district court upheld those awards.
SAP appealed the district court’s final judgment to our court. In Versata Software, Inc. v. SAP Am., Inc.,
Covered Business Method Patent Review
While all that was going on, SAP on September 16, 2012, petitioned the PTAB to institute a covered business method review of Versata’s '350 patent on the grounds that claims 17 and 26-29 of the patent were unpatentable for failure to comply with
Subsequently, at SAP’s request, the PTAB agreed to forego the § 102 review and expedite the
Proceedings Before the District Court
Before turning to the case before us, there is one additional litigation to be noted which is of direct relevance to this case. On March 13, 2013, while the PTAB was conducting its CBM review, Versata sued
The district court held that it lacked subject matter jurisdiction “because the AIA’s express language, detailed structure and scheme for administrative and judicial review, legislative purpose, and nature of the administrative action evince Congress’s clear intent to preclude subject matter jurisdiction over the PTAB’s decision to institute patent reexamination [sic ] proceedings.” Versata Dev. Corp. v. Rea,
We have jurisdiction over this case, Ver-sata I, pursuant to
Discussion
Ultimately the issue to be decided on appeal concerns the substantive merits: whether the PTAB ruled correctly that the challenged earlier-issued claims of the '350 patent are invalid for the reasons given by the PTAB, namely, non-compliance with
Issue Number 1 — Judicial Review
The initial decision to institute review in response to a petition is the first step in the post-grant review process. In this case, the PTAB at the initial decision to institute stage determined that the petition to review the '350 patent should be granted. In making that determination, the PTAB’s three-judge panel concluded:
• that the '350 patent was a “covered business method patent” as that term is defined in the statute;
• that it was not a “technological invention,” a statutorily-stated exception to that definition;
• that§ 101 was applicable to patents reviewed under the CBM process;
• and that, as required by § 324(a), “it is more likely than not that at least 1 of the claims challenged in the petition is unpatentable.”
In its patent owner’s preliminary response at the decision to institute stage, Versata had challenged each of these propositions. The PTAB addressed Versata’s arguments and rejected them.
After a review is instituted, the review proceeds to a trial before the PTAB, and concludes with the PTAB’s ‘final written decision’: “the [PTAB] shall issue a final written decision with respect to the patent-ability of any patent claim challenged by the petitioner.” § 328(a). Section 329 further provides for appeal of that decision to the Court of Appeals for the Federal Circuit pursuant to §§ 141-144; section 144 provides that “[t]he United States Court of Appeals for the Federal Circuit shall re
Before us then are the merits of the final written decision rendered by the PTAB in this case. To be clear, it is the merits of the final written decision that are on appeal; we are not here called upon to review the determination by the PTAB whether to institute a CBM review, and indeed the statute expressly instructs that we may not:
The determination by the Director whether to institute a post-grant review under this section shall be final and nonappealable.
Turning to the merits, the PTAB, in its final written decision, held Versata’s CBM patent claims 17 and 26-29 unpatentable under
• Versata’s patent does not claim a “covered business method,” and in any event falls within the safe harbor of a “technological invention”;
• The PTAB does not have authority to review CBM patents for subject-matter eligibility under35 U.S.C. § 101 ;
• The PTAB’s claim construction is wrong, it applied the “broadest reasonable interpretation” to its claim construction, which it should not have, and had it correctly analyzed§ 101 under the proper claim construction it would not have reached the holding it did.
SAP responds that, absent a finding that these issues are either non-appealable or waived, on the merits the USPTO correctly held that the '350 patent is a “covered business method patent” under § 18(a)(1)(E), and that the AIA authorizes
The USPTO entered the case as interve-nor, as authorized by § 143. The USPTO devotes a substantial part of its brief to the argument that this court lacks jurisdiction to review the Director’s decision to institute a post-grant review of the '350 patent. On its face that argument would appear curious, since as earlier explained the issue on appeal before the court is only the merits of the final written decision. However, the USPTO makes the point that the question of whether the patent at issue here falls within the scope of the PTAB’s authority under § 18 as a “covered business method patent” (not one claiming a “technological invention”) was decided by the PTAB at the decision to institute stage, and on that basis it is immunized from later judicial review at the final decision stage.
SAP, but not the USPTO, makes the additional argument that, under the specific terms of the judicial review bar in
Thus, the USPTO contends that the CBM-speeific invalidation here must be upheld even if the PTAB incorrectly interpreted the statute regarding what is a CBM patent and the patent is not a CBM patent under the correct law, and SAP further contends that the invalidation under
This is the first case challenging the scope of
In St. Jude Medical, Cardiology Division, Inc. v. Volcano Corp.,
We held that the patentee’s appeal of the PTAB'decision was statutorily barred by § 314(d), and granted the motion by the defendant and the USPTO to dismiss the appeal. In its decision to deny direct review, our court examined the application of § 314(d) to the case. As noted, this section — 314(d)—is the counter-part to the one with which we' are concerned here—
The court commented that § 314(d) “may well preclude all review by any route, which we need not decide. It certainly bars an appeal of the non-institution decision here.”
The same day the court issued St. Jude, we issued two other opinions reaching the same result under the same statute, though in different procedural contexts. See In re Dominion Dealer Solutions, LLC,
In its opinion in In re Procter & Gamble Co., the court explained what it was not deciding:
It is a separate question whether section 314(d) means that the decision to institute the review is unchallengeable later — if the Board reaches a decision under section 318(a) and an appeal is taken under section 319 [appeal to this court of the final written decision of the PTAB], Perhaps section 314(d)’s broad language precludes all judicial review of the institution decision, even in an eventual section 319 appeal. We need not decide that question, which can be addressed in a section 319 appeal. Nor need we address whether an immediate challenge could be brought in district court [through an APA action].
Again, the statutory references are to the IPR ch. 31 provisions, which, though not directly applicable to CBM cases, par
Two other recent opinions by this court warrant comment since they arise directly under chapter 32 and § 18, and, though they involve different fact settings from those discussed above, they cast light on how we are to understand § 18.
This court reversed the district court’s denial of the stay. We noted that the district court had erred to the extent it had undertaken a review of the merits of the PTAB decision to institute review. We said:
Indeed, a challenge to the PTAB’s “more likely than not” determination at this stage amounts to an improper collateral attack on the PTAB’s decision to institute CBM review, and allowing it would create serious practical problems .... Congress clearly did not intend district courts to hold mini-trials reviewing the PTAB’s decision on the merits of the CBM review.... The stay determination is not the time or the place to review the PTAB’s decisions to institute a CBM proceeding.
Id. at 1313.
And in Benefit Funding Systems LLC v. Advance America Cash Advance Centers Inc.,
The patentee’s sole argument on appeal was that the USPTO could not institute review proceedings of a CBM patent on the' grounds of a violation of
This is not to say that a patent owner could never attack the PTAB’s authority to conduct CBM review. ‘ Indeed, Appellants might potentially challenge that authority in the context of a direct appeal of the PTAB’s final decision.... They simply cannot mount such a challenge as a collateral attack in opposition to a stay. Having rejected Appellants’ argument as an impermissible collateral attack, we do not address the underlying merits of that attack, namely whether§ 101 is a valid ground for CBM review.
Id.
Returning to the case before us, Versa-ta, as earlier noted, had brought an action in the U.S. District Court for the Eastern District of Virginia, under the Administrative Procedure Act (“APA”), to prevent the PTAB from proceeding with the § 18 CBM review of the '350 patent at issue in this case. Versata challenged the authority of the PTAB to have instituted the review of the '350 patent under § 18; SAP
In support of its motions to dismiss, the USPTO argued, consistent with the suggestion noted supra in Benefit Funding, that there was an available remedy under the AIA statute — the issues decided by the PTAB at the institution stage are preserved for review at the time of an appeal to the Federal Circuit of the PTAJB’s final written decision. The district court granted the USPTO’s motions and SAP’s motion and dismissed Versata’s APA complaint on two alternative grounds, including that “an adequate remedy exists by way of direct appeal [of the final written decision] to the Federal Circuit.” Versata Dev. Corp.,
The district court suit involved essentially the same parties, the same patent, and the same basic issues. Accordingly, based on the USPTO’s representations to the district court, despite (or in accordance with) the provisions of
The USPTO, however, now represented in this appeal by the Department of Justice Civil Division Appellate Staff, advises the court that the Government has reconsidered its position. The Government now argues for what it characterizes as a “jurisdiction[al]” bar on this court’s review of at least some of the issues decided at the initial decision to institute stage. Intervenor’s Br. at 13. Some of the Government’s language suggests a bar on reviewing any PTAB determination made when instituting review. This language would seem to cover even whether
In response to the Government’s new position, Versata argues that the Government is estopped from reconsidering its position in the district court APA action, citing New Hampshire v. Maine,
Ordinarily, the Government’s willingness to confess error should be encouraged. However, given the fact that the district court action and this appeal share the same parties, the same patent, and the same contested issues, there is a ‘bait-and-switeh’ aspect to the Government’s newly-arrived-at position: when it helps the Government’s position, a predicate issue, they argue, can be reviewed on appeal; but when it might hurt, the issue becomes not reviewable.
Fortunately, we need not judge the astuteness of the Government’s confession. Nor, in deciding the question of reviewability, need we decide the strength of Versa-ta’s estoppel position. This is because the Government was right the first time — for the reasons we shall next explain, its original position on reviewability, with some clarification, was the correct one.
We have before us Versata’s appeal from the final written decision of the PTAB invalidating Versata’s patent under § 18 authority, an authority limited to CBM patents. On the reviewability issue that divides Versata and the Government, Versata argues that the invalidation must be reversed as beyond the § 18 authority because the '350 patent is not actually a CBM patent under the law if properly
To determine this reviewability issue, two related questions must be answered: first, does the
As to the first question: what
The distinct agency actions do not become- the same just because the agency decides certain issues at both stages of the process. Nor do they become the same just because the agency chooses, or even follows a congressional directive, to decide an issue determining final-action authority at the initiation stage and then does not revisit the issue later. Early-stage decision of a basic authority question can make sense as an efficiency matter. There is no good reason to launch a proceeding if it is clear that the agency will have no authority to act at its conclusion. On the other hand, some determinations normally made at the initiation stage may not affect authority to render a final decision whenever made.
Overlap of issues is not determinative, neither is the timing determinative. Indeed, the Government implicitly agrees. Unlike SAP, it pointedly does not contend that
It would not only run counter to the language of
It has long been the law that “[a]d-ministrative determinations must have a basis in law and must be within the granted authority.... An agency may not finally decide the limits of its statutory power. That is a judicial function.” Soc. Sec. Bd. v. Nierotko,
More specifically, when doubt about congressional intent exists, the general presumption favoring judicial review of rights-changing administrative action is controlling. Block v. Cmty. Nutrition Inst.,
Congress explained the anomalous nature of a bar to judicial review of final agency action:
Very rarely do statutes withhold judicial review. It has never been the policy of Congress to prevent the administration of its own statutes from being judicially confined to the scope of authority granted or to the objectives specified. Its policy could not be otherwise, for in such a case statutes would in effect be blank checks drawn to the credit of some administrative officer or board.
S.Rep. No. 79-752, at 26 (1945); H.R.Rep. No. 79-1980, at 41 (1946) (same); Bowen,
Here, nothing in
As to the second question implicit in the Government’s nonreviewability contention: one of the limits on § 18 invalidation authority is that the patent at issue be a CBM patent. Congress created a special review regime, over and above any other authority the PTAB might have, for reviewing and invalidating patents that qualify as CBM patents. And it put a time limit (eight years) on the PTAB’s authority under that regime. This requirement defines the-PTAB’s authority to invalidate under § 18. If a particular patent is not a CBM patent, there is no proper pleading that could be filed to bring it within the PTAB’s § 18 authority.
In so concluding, we need not and do not consider all of the various determinations the PTAB may make to initiate proceed
The Government and SAP have not identified any reason to draw different conclusions. It is clear from the legislative history of the AIA that Congress purposely set out to create a relatively simple and expedited administrative process. See, e.g., H.R.Rep. No. 112-98, at 48 (2011), 2011 U.S.C.C.A.N. 67, 78. However, nothing in that purpose precludes or argues against this court, in an appeal of a final written decision, deciding contested questions regarding premises necessary to the agency’s ultimate relied-on authority to take the action on appeal — here, invalidation of the patent claims under the CBM authorization — just because the agency first addressed those premises at the initiation stage of the proceeding. The appeal process, with its inherent delays, is already committed. Any further delay caused by having the court decide as part of the basic merits ease a predicate issue such as raised here, would be limited. Indeed, when the answers to these predicate issues are decided as a matter of precedent, further delay, if any, will be minimal, if not essentially disappear.
The parties, digging through the legislative record, come up with competing statements from various legislators with regard to the possible scope of the issues to be heard on appeal. Even assuming such statements are thought to be relevant, the variety of conflicting views illustrates why we must focus on the structure and language of the act, not on what its advocates and detractors may say about it.
Looking at the structure of § 18, the Government, in support of its new-found position against judicial review, notes that the only provision of the AIA that allows an appeal to this court from a post-grant review proceeding is § 329; that section authorizes judicial review of the “final written decision” of the PTAB made pursuant to § 328(a). The government reads this as limiting review to only the final written decision, and not anything in the initial decision to institute. But that of course begs the question — what aspects of the final written decision are subject to review?
The Government finds significance in the fact that § 328(a) directs the PTAB to issue a decision with respect to the patentability of any patent claim. Putting this provision together with § 329, the Government argues that on appeal the court is limited to only what the PTAB is directed to do. But that is a non-sequitur. The statutory description of an agency’s decisional duties does not necessarily define the scope of an appellate court’s ultimate merits considerations.
The Government also draws parallels between this issue under the AIA and the USPTO’s practice in the prior-established ex parte reexamination proceedings, and in its prior practice under the now-superseded provisions for inter partes reexamination. We do not find that either of those proceedings, established under different statutory provisions and dealing with different issues, is controlling here. It is worth noting, however, that the pre-AIA case law made clear that limitations on the scope of reexamination authority were re
In short, we do not find that the Government’s arguments approach meeting the “heavy burden” of persuasion needed to overcome the “strong presumption” of judicial review. Congress, by limiting the scope of the review bar in
In re Cuozzo Speed Technologies, LLC, No. 14-1301,
To take the two questions in reverse order: Cuozzo did not decide whether status as a CBM patent was a limit on invalidation of authority under § 18. It could hardly have done so. Cuozzo did not involve a purported CBM patent or the PTAB’s § 18 authority.
More broadly, Cuozzo did not address, and had no occasion to address, the question whether (despite § 314(d)) a final written decision can be reviewed for compliance with a limit on the PTAB’s invalidation authority. Recognizing the distinction between initiation and final invalidation, Cuozzo,
And that focus was inherent in the substance of the challenge, for a reason Cuozzo noted. The challenge was simply that the IPR petition at issue had not cited particular prior art the PTAB ultimately relied on for invalidation. A proper petition undisputedly could have cited it, thereby plainly giving the PTAB authority to invalidate the patent at issue in the IPR. Id. at 1273-74. The alleged error in initiation was “irrelevant” because it was like the error that was “washed clean” in Hiniker. Id. The court in Cuozzo did not rule on or have before it an asserted violation of a limit on the PTAB’s ultimate authority to invalidate that could not have been cured by a proper pleading.
Issue Number 2 — Is the '350 Patent a “Covered Business Method Patent”?
AIA section 18 establishes a post-grant review proceeding “for review of the validity of covered business method patents.” § 18(a)(1). In case anyone wished to argue the question, Congress left no doubt about the scope of § 18: “The Director may institute a transitional proceeding [under § 18] only for a patent that is a covered business method patent.” § 18(a)(1)(E).
The statute defines a “covered business method patent” as:
a patent that claims a method or corresponding apparatus for performing data processing or other operations used in the practice, administration, or management of a financial product or service. ...
§ 18(d)(1). A basic disagreement between the parties to this case is how broadly this language should be read, and accordingly, whether it encompasses the invention set out in the '350 patent.
In addition to the boundaries inherent in the statutory definition, Congress also provided a specific exception: “the term [covered business method patent] does not include patents for technological inventions.” Id. Unhelpfully, Congress did not then define a “technological invention,” but instead instructed the USPTO to “issue regulations for determining whether a patent is for a technological invention.” § 18(d)(2). The USPTO has by regulation promulgated its version of a definition of a “technological invention.”
Congress, in addition to the specific authorization to the USPTO to adopt regulations defining the meaning of “technological invention,” also gave the USPTO broad authority over the entire § 18 program— authority to “issue regulations establishing and implementing a transitional post-grant review proceeding for review of the validity of covered business method patents.” § 18(a)(1). Pursuant to that broad authority, the USPTO adopted extensive regulations governing the § 18 program. See
We first consider what, under the statute and the issued regulations, is a “covered business method patent,” and whether the term applies to the patent at issue in this case. Subsequently we consider what the USPTO regulations, in the absence of a statutory definition, understand the exception for a “technological invention” to be, and again its application to this patent.
The Scope of the Term “Covered Business Method Patent ”
We set out above the statutory definition of a “covered business method patent” found in § 18(d)(1). The USPTO’s regulation, defining the same term, restates verbatim the statutory definition and nothing more. Though that avoids any question of whether the regulation is consistent with the statute, regrettably it adds nothing to our understanding of the scope question.
In response to Versata’s objection that the '350 patent was not a covered business method patent, the PTAB was therefore left to its own devices. The PTAB undertook an analysis regarding whether Versa-ta’s claims 17 and 26-29 must necessarily be directed to “financial products or ser
The PTAB observed that in its notices the USPTO considered the legislative debates and history, as well as the overall transitional program itself. See J.A. 21-22 (citing Transitional Program for Covered Business Method Patents—Definitions of Covered Business Method Patent and Technological Invention, 77 Fed.Reg. 48734, 48735 (Aug. 14, 2012)). Also, the PTAB observed that in its final notice of rulemaking the agency explained that the legislative history supported the proposition that the definition be broadly interpreted to “encompass patents claiming activities that are financial in nature, incidental to a financial activity or complementary to a financial activity.” Id.
Further, in the Federal Register notice explaining the agency’s decision to adopt its final rule, the agency notice observes that one commentator responding to the rule proposal suggested that the regulatory definition of covered business method should be limited specifically to the products and services of the financial services industry. 77 Fed.Reg. at 48736. Another suggestion was that the agency should make specific reference in the definition to Class 705 of the United States Classification System, used by USPTO examiners. Id. (This classification is generally considered to be focused primarily on financial institutions as such.)
The PTAB noted that the agency summarily rejected these proposals. Instead, the USPTO stated that:
The suggestion to clarify that the term “financial product or service” is limited to the products or services of the financial services industry is not adopted. Such a narrow construction of the term would limit the scope of the definition of covered business method patents beyond the intent of section 18(d)(1) of the AIA.
Id.
The PTAB thus declined to interpret the statute as requiring that the patent’s invention literally comprehend a financial product or service: “The term financial is an adjective that simply means relating to monetary matters.” J.A. 23. The PTAB concluded that “Versata’s '350 patent claims methods and products for determining a price and that these claims, which are complementary to a financial activity and relate to monetary matters, are considered financial products and services under § 18(d)(1).” Id.
In its appeal here, Versata renews its argument against the PTAB position. Versata takes the position that Congress used the phrase “financial product or service” for a reason and that the plain meaning of the text of the statute limits the PTAB’s jurisdiction to products or services from the financial sector — i.e., banks, brokerages, holding companies, insurance, and similar institutions with a finance focus. If Congress had intended the scope of the definition to capture other things ineiden-
SAP responds that the '350 patent claims “[a] method for determining a price of a product offered to a purchasing organization.” Appellees’ Br. at 45 (quoting '350 patent col. 19, ll. 57-58). Under any interpretation of the statutory definition, argues SAP, price calculations plainly fall within the “practice, administration, or management of a financial product or service” language of AIA § 18(d)(1). Even if Congress’s intent in this regard could be considered unclear, the USPTO’s interpretation of § 18(d)(1) as broadly interpreted and “encompassing] patents claiming activities that are financial in nature, incidental to a financial activity or complementary to a financial activity,” is, according to SAP, entitled to deference under Cooper Technologies Co. v. Dudas,
The USPTO in its brief as intervenor notes that the PTAB’s interpretation of “financial” as “relating to monetary matters” comports with the dictionary definition, citing The Random House Dictionary of the English Language 719 (2d ed.1987) (defining, according to the USPTO, “financial” as “pertaining or relating to money matters”). This interpretation, it is said; readily embraces the '350 patent which expressly claims a “method for determining a price of a product” in claim 17. '350 patent, col. 20, l. 66. According to the USPTO, nothing in the text of the statute limits AIA § 18(d)(1) to any one sector or industry. Further, the legislative history supports the broader definition. Thus, argues the USPTO, the PTAB’s interpretation was not arbitrary or capricious. .
We agree with the USPTO that, as a matter of statutory construction, the definition of “covered business method patent” is not limited to products and services of only the financial industry, or to patents owned by or directly affecting the activities of financial institutions such as banks and brokerage houses. The plain text of the statutory definition contained in § 18(d)(1) — “performing ... operations used in the practice, administration, or management of a financial product or service” — on its face covers a wide range of finance-related activities. The statutory definition makes no reference to financial institutions as such, and does not limit' itself only to those institutions.
To limit the definition as Versata argues would require reading limitations into the statute that are not there. This understanding of the text is reinforced by the scope of the entire § 18 program, and the general concern, including within the halls of Congress, regarding litigation abuse over business method patents. These concerns caused Congress to create a special program for these patents in the first place.
Furthermore, the expertise of the USPTO entitles the agency to substantial deference in how it defines its mission. Congress recognized this by its broad delegation of rulemaking authority in the establishment and implementation of this transitional post-grant review proceeding. See § 18(a)(1). It might have been helpful if the agency had used that authority to elaborate on its understanding of the definition provided in the statute. Nevertheless, for the reasons we have explained, we conclude that the '350 patent and the in
The Meaning of “Technological Invention ”
Section 18(d) states that the term “covered business method patent” does not include patents for “technological inventions.” The parties dispute whether the '350 patent is for a technological invention. This requires that we first determine what is meant by that term, and then whether the PTAB was correct in finding this patent is not such an invention. As earlier noted, Congress did not define the term, but left it to the USPTO to do. The USPTO followed Congress’s instructions, and in
According to the regulation, a “technological invention” is one in which “the claimed subject matter as a whole recites a technological feature that is novel and unobvious over the prior art; and solves a technical problem using a technical solution.” Id. The regulation specifies that these criteria will be considered “on a case-by-case basis.” Id. This definition is notable as much for what it does not say as for what it does say.
First,.the requirement that a technological invention should be novel and nonobvious over the prior art could be said to be rather obvious, and not novel. This is because in order to be eligible for patenting in the first place, any invention must be novel (
Putting this part of the regulation’s definition aside, we are left with a definition of a “technological invention” as essentially one having a “technological” feature that solves a “technical” problem using a “technical” solution. Defining a term in terms of itself does not seem to offer much help. In short, neither the statute’s punt to the USPTO nor the agency’s lateral of the ball offer anything very useful in-understanding the meaning of the term “technological invention.”
Thus the PTAB, in concluding that it had jurisdiction over the '350 patent as a covered business method patent that was not within the exception for a technical invention, had to craft its own understanding of what is meant by a “technological invention.” First, the PTAB recited the fact that the USPTO had adopted a definition and had published a related notice, see Office Patent Trial Practice Guide, 77 Fed. Reg. 48756, 48763-64 (Aug. 14, 2012). The notice listed certain characteristics which, if present, did not help support a finding that the invention was within the “technological invention” exception from CBM treatment. These are: 1) mere “recitation of known technologies”; 2) “reciting the use of known prior art technology”; and 3) “combining prior art structures to achieve the normal, expected, or predictable result of that combination.” Id. at 48764.
The PTAB, taking the position that the presence of a single qualifying claim is sufficient to institute covered business method review, selected claim 17 for closer analysis. (Claim 17 is set out in extenso in the ‘Background’ section, supra.) Yersata, in its effort to avoid CBM review of the '350 patent, argued that claim 17, like all the claims in the patent, recited a novel
We accept the PTAB’s use of claim 17 as representative. As the PTAB correctly noted, even if the invention required the use of a computer, the claim did not constitute a technological invention. As we are now instructed, the presence of a general purpose computer to facilitate operations through uninventive steps does not change the fundamental character of an invention. See Alice Corp. Pty. Ltd. v. CLS Bank Int'l, - U.S. -,
The PTAB viewed the invention typified by claim 17 as basically a method of determining a price. This was a determination that could be achieved “in any type of computer system or programming or processing environment,” and accordingly “no specific, unconventional software, computer equipment, tools or processing capabilities are required.” J.A. 28 (citing Dealertrack, Inc. v. Huber,
We agree with the PTAB’s determination that claim 17 does not solve a technical problem using a technical solution. Indeed, contrary to Versata’s argument that the invention “ ‘leveraged the hierarchal data structures used by large companies to organize pricing information,’ ” we agree with the PTAB that this is not a technical solution but more akin to creating organizational management charts. Id. (citation omitted). Like the PTAB, and for many of the same reasons, we conclude that whatever may be the full sweep of the term “technological invention,” the invention that comprises the '350 patent is essentially not a technological one as that term ordinarily would be understood.
Accordingly, we affirm the PTAB’s conclusion that Versata’s '350 patent is a covered business method patent, and that it does not fall within the exception for technological inventions, whatever that exception may otherwise mean.
Issue Number 3 — Claim Construction Standards
When addressing the ultimate merits in this case — the question of compliance by the patent with the requirements of § 101 — the PTAB faced an issue of claim construction. The PTAB applied its “broadest reasonable interpretation” (“BRI”) standard to the issue, the standard adopted in 2012 by the USPTO for AIA post-grant proceedings, and generally used in USPTO office actions. Versata challenges application of that standard to its claims in this case.
The PTAB, in its final written decision, construed four claim terms of which the parties sought construction. On appeal, Versata points out, correctly, that the PTAB applied the BRI standard to each of its claim constructions. Versata consequently challenges generally, the PTAB’s
According to Versata, both Versata and SAP agreed at the outset of the proceed1-ings that the term did require denormal-ized numbers. The PTAB declined to so construe the term, and, based on application of the BRI standard, decided that the invention in the '350 patent did not require denormalized numbers.
Versata argues that such a claim construction is not permissible for a number of reasons, and that its use adversely impacted the validity determination of the '350 patent under the PTAB’s
SAP, whatever its position in the earlier litigation may have been, takes the position in this appeal that the PTAB, applying BRI, properly construed the claims broadly as not limited to “denormalized numbers.” SAP points to the fact that the dependent claims recite “denormalized numbers” and the independent claims do not, and the written description describes this feature as only “ ‘[o]ne aspect’ of the purported invention.” Appellees’ Br. at 57-58 (quoting '350 patent, col. 8, l. 39). Further, argues SAP, even if the PTAB erred in its construction, the error is harmless because its correction would not change the result.
On the basic question of the propriety of the PTAB applying the BRI standard in its decision-making, this is an issue on which we need not elaborate here. In Cuozzo, a case that issued after argument in this case, the majority approved the USPTO’s use of the BRI in PTAB claim construction.
Furthermore, on careful review of the record in light of the parties’ arguments, it is less than clear that the outcome in this case would be different under a different claim construction regime. This is because, even applying the usual court-utilized “one correct construction” formula, we conclude that the PTAB’s interpretation of the claims, for the same reasons given by the PTAB after careful consideration, is correct. This is particularly the case regarding claim 17, which, in light of the principles of claim differentiation and the understandings derived from the written description, as described above, is not limited to denormalized numbers.
Thus, even without, the guidance provided by Cuozzo, under either formulation of the claim construction standard the result is likely the same in this case. The PTAB’s claim constructions are affirmed.
Issue Number 4 — The Merits Determination
In its final written decision, the PTAB held that claims 17 and 26-29 of the '350 patent were unpatentable under
Is
As a preliminary matter, we address the question of whether we can review, as a matter of law, whether the PTAB is authorized to invoke
First, on an appeal of the PTAB’s final written decision, all questions that relate to the ultimate merits of the case are before us. Since the merits of this case turn on an application of
Second, for all the same reasons we discussed earlier,
We turn then to the more challenging question of whether the PTAB was within its statutory invalidation authority when it chose to apply
Section 282(b) in turn specifies the defenses that may be. raised in an action involving the validity or infringement of a patent. Among the defenses listed are:
(b)(2) — invalidity of the patent or any claim on any ground “specified in part II as a condition for patentability”;
(b)(3) — invalidity of the patent or any claim for failure to comply with any requirement of § 112 (except best mode) or § 251.
Versata argues that a CBM post-grant review must be limited to a ground that could be raised under paragraph (2) or (3) of section 282(b). Versata then reasons that § 282(b)(2) authorizes defenses on
SAP counters that it is generally understood that
The USPTO echoes these arguments, and cites to Graham v. John Deere Co.,
Versata is correct that a strict adherence to the section titles can support an argument that
It would require a hyper-technical adherence to form rather than an understanding of substance to arrive at a conclusion that
It is often said, whether accurate or not, that Congress is presumed to know the background against which it is legislating. Excluding
Finally, the Merits of the PTAB Decision
Having determined that the PTAB had authority to test the validity of the challenged claims under
The PTAB further analyzed whether the claims incorporated “sufficient meaningful limitations” to ensure that they recited more than an abstract idea, and determined that the claims did not add meaningful limitations beyond the abstract idea. As part of this analysis, the PTAB concluded that, although the claims were drafted to include computer hardware limitations, the underlying process “could also be performed via pen and paper.” J.A. 73. The PTAB determined that the recitation of generic general purpose computer hardware in the claims represented routine, well-understood conventional hardware that failed to narrow the claims relative to the abstract idea. The PTAB also credited the testimony of SAP’s expert, Dr. Sie-gel, over that of Versata’s expert, Dr. Lie-bich, and found that the additionally claimed steps of storing, retrieving, sorting, eliminating, and receiving were “well-known, routine, and conventional steps.” J.A. 75-77.
We review questions concerning compliance with the doctrinal requirements of
Generally, the courts have found that the task of applying the first two of these judicially-crafted exceptions — laws of nature and natural phenomena — not particularly difficult;
Under current thinking about how to understand .an “abstract idea,” inventions that are thought to be based on an abstract idea as such are not per se unpat-entable. All inventions, at some level, “embody, use, reflect, rest upon, or apply laws of nature, natural phenomena, or abstract ideas.” Id. (citation and quotation
Thus the Supreme Court has identified a two-step framework. First, determine whether the claims at issue are directed to one of the patent-ineligible concepts. Id. at 2355; see also Mayo Collaborative Servs. v. Prometheus Labs., Inc., - U.S. -,
To answer the second question, we consider the limitations of each claim both individually and as an ordered combination to determine whether the additional limitations transform the nature of the claim into a patent-eligible application of a patent-ineligible concept. Id. The Supreme Court has described this second step as a search for an inventive concept— a limitation or combination of limitations that is sufficient to ensure that the patent in practice amounts to significantly more than a patent upon an ineligible concept itself. Id.
In other words, a claim reciting an abstract idea must include additional features to ensure that the claim is more than a drafting effort designed to monopolize an abstract idea. Id. at 2357. This requires more than simply stating an abstract idea while adding the words “apply it” or “apply it with a computer.” See id. at 2358. Similarly, the prohibition on patenting an ineligible concept cannot be circumvented by limiting the use of an ineligible concept to a particular technological environment. Id.
This court in its efforts to make an “abstract idea” less abstract developed the machine-or-transformation test. The Supreme Court has said the test can serve as a useful clue for determining whether some inventions are eligible processes under
In recent years the Supreme Court and this court have examined claims directed to abstract ideas on a number of occasions. Extensive discussion of these cases appears in many opinions, and we do not repeat that litany here. It may be helpful, nevertheless, to highlight briefly a few salient points as a means of comparison to the invention and claims in the '350 patent.
In Alice, the Court held that claims directed to the abstract idea of intermedi-ated settlement were unpatentable, even though some of the claims required generic computer implementation. In Bilski, the Court held that claims directed to the abstract idea of risk hedging were unpatentable. In Parker v. Flook,
These cases may be contrasted with Diamond v. Diehr,
Our court on numerous occasions has examined claims directed to abstract ideas. In Content Extraction & Transmission LLC v. Wells Fargo Bank, National Ass’n,
In Ultramercial, we found that claims directed to the abstract idea of using an advertisement as an exchange or currency were ineligible even though the claims were tied to a general purpose computer and invoked the Internet. In buySAFE, Inc. v. Google, Inc.,
In Bancorp Services, L.L.C. v. Sun Life Assurance Co. of Canada (U.S.),
These cases may be contrasted with instances in which we have found patents directed to patent-eligible subject matter. For example, in DDR Holdings, LLC v. Hotels.com, L.P.,
Applying the first step of the Alice/Mayo framework, we agree with the PTAB’s analyses of the claims at issue. Claims 17 and 26-29 of the '350 patent are directed to the abstract idea of determining a price, using organizational and product group hierarchies, in the same way that the claims in Alice were directed to the abstract idea of intermediated settlement, and the claims in Bilski were directed to the abstract idea of risk hedging. More specifically, claim 17 is directed to a method of determining a price. Claim 27 is directed to a computer-implemented method of determining a price, and claims 26 and 28 are directed to computer-readable storage media comprising computer instructions to implement the methods of claims 17 and 28. Claim 29 is directed to an apparatus for determining a price that includes computer program instructions capable of performing the same method steps recited in claim 27. Using organizational and product group hierarchies to determine a price is an abstract idea that has no particular concrete or tangible form or application. It is a building block, a
Applying the second step of the Alice/Mayo framework, we agree with the PTAB that, after considering the limitations of each claim individually and as an ordered combination, none of the claims have sufficient additional limitations to transform the nature of any claim into a patent-eligible application of an abstract idea. Taking the claim limitations separately, the function performed by the computer at each step is purely conventional. For example, the limitations of claim 17 involve arranging a hierarchy of organizational and product groups, storing pricing information, retrieving applicable pricing information, sorting pricing information, eliminating less restrictive pricing information, and determining the price. All of these limitations are well-understood, routine, conventional activities previously 'known to the industry.
The same is true of the limitations in claims 26-29. The limitations are either inherent in the abstract idea of determining a price using organization and product group hierarchies — e.g., arranging the hierarchies — or conventional and well-known limitations involving a computer — e.g., storing pricing information. The PTAB specifically examined this issue and credited the testimony of SAP’s expert over Versata’s expert to determine that the additionally claimed steps of storing,.retrieving, sorting, eliminating and receiving were “well-known, routine, and conventional steps.” J.A. 77.
Similarly, when considered as an ordered combination, the components of each claim add nothing that is not already present when the steps are considered separately. Viewed as a whole, the claims simply recite the concept of price determination by using organizational and product group hierarchies as performed by a generic computer.
This court found similar claims to be ineligible despite the recitation of a general purpose computer or the Internet in Content Extraction, Ultramercial, buySAFE, Bancorp, and CyberSource. See also Intellectual Ventures I LLC v. Capital One Bank (USA), Nat’l Ass’n, No. 14-1506,
Unlike Diehr, the claims at issue do not improve some existing technological process or solve some technological problem in conventional industry practice. Unlike DDR Holdings, the claims at issue are not rooted in computer technology to solve a problem specifically arising in some aspect of computer technology. Instead, the claims at issue are more like the claims we summarized in DDR Holdings as insufficient to reach eligibility — claims reciting a commonplace business method aimed at processing business information despite being applied on a general purpose computer.
Versata raises several arguments to support its position that its claims are patent eligible under
Versata argues that its claims recite “a specific approach to determining the price of a product on a computer, using hierarchies so as to enable the desired benefit for the computing environment: fewer software tables and searches, leading to improvements in computer performance and ease of maintenance.” Appellant’s Br. at 43-44. However, all of the parties— including Versata — recognize that these supposed benefits are not recited in the claims at issue. Versata contends that the benefits are relevant under Genetics Inst., LLC v. Novartis Vaccines & Diagnostics, Inc.,
Examination of the claims- — -as a whole and in terms of each claim’s limitations— reveals that the claims are not directed to improving computer performance and do not recite any such benefit. The claims are directed to price determination and merely use a computer to improve the performance of that determination — not the performance of a computer.
Versata argues that its claims are tied to a machine and that this favors patent eligibility. As we previously noted, the machine-or-transformation test can be a useful clue in determining the eligibility of method claims. However, the claims at issue do not transform a general purpose computer into a specific machine. The steps in Versata’s claims (e.g., arranging, storing, retrieving, sorting, eliminating, determining) are conventional, routine, and well-known. They involve the normal, basic functions of a computer. “In order for the addition of a machine to impose a meaningful limit on the scope of a claim, it must play a significant part in permitting the claimed method to be performed, rather than function solely as an obvious mechanism for permitting a solution to be achieved more quickly, i.e., through the utilization of a computer for performing calculations.” SiRF Tech., Inc. v. Int’l Trade Comm’n,
Versata asserts that the PTAB construed the claim term “data source” in claim 17 — and found in claims 17, 27, and 29 — as a “computer storage medium” and that this is inconsistent with the PTAB’s finding that the underlying process could be performed via pen and paper. However, there is no inconsistency. Courts have examined claims that required the use of a computer and still found that the underlying, patent-ineligible invention could be performed via pen and paper or in a person’s mind. See, e.g., Benson; CyberSource,
Versata’s other arguments are similarly unavailing. The PTAB did not shift SAP’s burden of proof onto Versata. The PTAB did not conflate the inquiries of
Finally, both Versata and SAP cite Ultramercial to support their respective positions. Versata argues that its claims
After weighing the arguments and evidence submitted by the parties, and following an oral hearing, the PTAB issued its final written decision on patentability. In its decision, the PTAB correctly applied the Supreme Court’s test in Alice and Mayo. Versata identifies no persuasive basis for disturbing the PTAB’s determination, which was amply supported by the record before it. The
We recognize that any given analysis in a
Additional arguments were raised by the parties regarding waiver and claim preclusion, potential issues arising in the long course of their litigation. We have examined these issues, and find nothing in them to persuade us that we should reach different conclusions than those expressed herein.
Summary
With regard to the issues in the case, we conclude:
• On appeal in a § 18 case to this court of a final written decision by the PTAB, as a general principle we may review issues decided during the PTAB review process, regardless of when they first arose in the process, if they are part of or a predicate to the ultimate merits. .
• The invention claimed in the '350 patent is a covered business method patent as that term is understood, and it does not fall within the meaning of a “technological invention.”
• The PTAB’s claim constructions are affirmed.
• The requirements of§ 101 of the Patent Act apply in a § 18 review.
• The '350 patent claims at issue were properly held invalid under§ 101 ,
Conclusion
For the reasons set forth herein, the decision of the PTAB in its final written decision is affirmed.
AFFIRMED
Notes
. For oral argument purposes, this case, denominated as Versata I, was consolidated with Case No. 20141145, on appeal from the United States District Court for the Eastern District of Virginia, involving the same parties, the same patent, and essentially the same issues. That case will issue as Versata II.
. The PTAB, established by § 7 of the AIA, is the successor to the Board of Patent Appeals and Interferences ("BPAI”). Compare
. In general, the AIA is codified in various parts of 35 U.S.Code. Section 18 of the AIA is not however codified; it is found in 125 Stat. References to § 18 in this opinion are to pages 329-31 of 125 Stat.
. The program is called 'transitional' because it is scheduled to 'sunset' eight years after implementing regulations are issued. § 18(a)(3)(A).
.A note on terminology: The potential under the AIA for more than the usual confusion that accompanies new congressional mandates stems in part from incidental features of the AIA. In particular, various new procedures intersect with earlier procedures of a similar-sounding kind, e.g., inter partes review ("IPR") has replaced inter partes reexamination, compare
. See also GTNX, Inc. v. INTTBA, Inc., Nos. 151349, -1350, -1352, -1353,
. Judge Newman dissented on the ground that the district court in its decision was not given the deference to which it was entitled.
. Under the APA, an agency initiation of proceedings is an agency action,
. See Shalala v. Illinois Council on Long Term Care, Inc.,
. The Government and SAP argue that the PTAB found Versata waived this issue during the trial. As we have explained, this is a predicate issue, and a necessary part of the record on appeal.
. The original opinion and dissent in Cuozzo issued on February 4, 2015.
. In that light, and following the issuance of the original opinion in Cuozzo, Versata, in a letter citing supplemental authority, requested that if necessary its appeal be treated as a mandamus petition. In view of our disposition of the case, the request is moot.
. As noted earlier, this issue was addressed in the PTAB's decision to institute review, not in its final written decision.
. There is a considerable amount of history regarding Class 705 — the technology class associated with the volume of business method patents that issued in the early 2000s. See, e.g., 157 Cong. Rec. 3432 (2011). Class 705 itself apparently served as the original template for the definition of a "covered business method,” but was thought to be too narrow. Id. at 13167.
. See also Brief of The Internet Association as Amicus Curiae in Support of Appellees.
. See also Amici Curiae Brief of 3M Company et al. in Support of Neither Party. But see Brief of Dell Inc. et al. as Amici Curiae in Support of Appellees and Intervenor; Brief of Amici Curiae Intel Corp. et al. Supporting Intervenors and Affirmance of the Agency’s Decision.
. Denormalized numbers, according to Ver-sata, do not have fixed units and may assume a different meaning and different units, determined by the software during run time and depending on the pricing operation that is being performed.
. The Supreme Court has alternately referred to the "three specific exceptions” to
. But see Ass’n for Molecular Pathology v. Myriad Genetics, Inc., - U.S. -,
Concurrence Opinion
concurring-in-part, dissenting-in-part.
I agree with the majority that the Patent Trial and Appeal Board properly held that the '350 patent claims at issue were
In reaching that conclusion, however, the majority impermissibly expands this court’s jurisdiction and our scope of review to second-guess the Board’s initial determination that the patent at issue is a “covered business method patent.” Our review of that question is barred by the plain language, structure, and purpose of the post-grant review provisions; and by our recent precedent interpreting an identical statutory bar on review in the inter partes review provisions. I cannot agree with the majority’s evasion of the statutory bar by its mere reframing of the issue for review as a question of the Board’s “ultimate authority to invalidate,” rather than the Board’s authority to ■ institute. That approach defeats Congress’s clearly expressed intent. And the majority offers no compelling reason why its approach is desirable, other than its appetite for arrogating to the court the Board’s statutory authority to finally decide which patents are “covered business method patent[s]” suitable for review. Because the statute precludes review of the Board’s institution decision that Versata’s patent is a “covered business method patent,” I respectfully dissent-in-part.
I
At the outset, it is important to note that this is not a case about whether Congress has precluded “judicial review of government actions that alter the legal rights of an affected person.” Maj. Op. at 1319. To the contrary, the statute clearly provides for review of the Board’s invalidity decision, which is the government action that alters the legal right of the patent holder. See
“To determine whether a particular statute precludes judicial review, we look to its express language, the structure of the statutory scheme, its legislative history and purpose, and the nature of the administrative action involved.” Pregis Corp. v. Kappos,
The presumption of judicial review noted by the majority is not insurmountable. “Congress can, of course, make exceptions to the historic practice whereby courts review agency action.” Bowen v. Mich. Acad. of Family Physicians,
Whether the presumption of review is overcome in this case depends on two issues. The first is whether the bar on judicial review of the Board’s institution decisions in
A
The plain language of
The plain language of related provisions in
This interpretation is also supported by the purpose of post-grant reviews. Congress intended post-grant reviews to provide a “quick and cost effective alternative[ ] to litigation.” H.R.Rep. No. 112-98, pt. 1, at 47-48 (2011), 2011 U.S.C.C.A.N. 67, 77-78. If we interpret
In sum, the plain language, structure, and purpose of the post-grant review provisions provide clear and convincing evidence that Congress did not intend to limit
B
The majority agrees that
The statute describes the “covered business method patent” requirement (CBM requirement) as a limit on the Board’s authority to institute review. Section 18 states that “[t]he Director may institute a transitional proceeding only for a patent that is a covered business method patent.” AIA § 18(a)(1)(E). The statute then expressly bars our review of the institution decision: “The determination by the Director whether to institute a post-grant review under this section shall be final and nonappealable.”
The majority proposes that if we call the CBM requirement something else — not only a limit on the Board’s authority to institute review, as the statute says, but also a limit on the Board’s ultimate authority to invalidate the patent — then we can review the issue. But our task is to apply the language of the statute, not to rewrite it. And the language of the statute expressly ties the CBM requirement to the Board’s unreviewable decision to institute, not the Board’s ultimate authority to invalidate. By using different language than that which Congress employed, the majority expands the scope of our review to include the same substantive issue— whether a patent is a “covered business method patent” — that Congress barred from review in
The majority fails to identify a statutory basis for its proposed reframing of the issue. It summarily declares, without any supporting citation, that the CBM requirement should be treated as a limit on the Board’s authority to invalidate because it “defines the PTAB’s authority to invalidate under § 18.” Maj. Op. at 1320. But nowhere does the statute describe the CBM requirement as a limit on the Board’s authority to invalidate. Cf. Timken U.S. Corp. v. United States,
This indirect relationship, however, cannot be enough to find that Congress intended this court to review an institution requirement as a limit on the Board’s ultimate authority to invalidate. Taken to its logical conclusion, this approach would eviscerate
II
The majority’s interpretation of
To avoid the holding in Cuozzo, the majority continues to rely on its reframing of the CBM requirement as a limit on the Board’s authority to invalidate. But even if that refraining were appropriate, the holding in Cuozzo still could not be distinguished. The relevant provision in Cuozzo states that the Board may only institute an inter partes review if “the information presented in the petition ... and any response ... shows that there is a reasonable likelihood that the petition would prevail.” Cuozzo,
The majority makes too much of a note in Cuozzo that the alleged defect in that case could have been cured with proper pleading. See Maj. Op. at 1322. For the purpose of determining whether Cuozzo involved a limit on the Board’s authority to invalidate, it is irrelevant whether the alleged defect could have been cured. The fact remains that the pleading was actually defective and therefore the Board exceeded its statutory authority to institute review. Thus, under the majority’s preferred framing, the Board violated an indirect limit on its ultimate authority to
More importantly, the potential for a proper pleading did not limit the holding in Cuozzo that the plain language of
In light of Cuozzo, we are bound to interpret
III
The bar on judicial review of institution decisions in
IV
At the end of the day, the majority does a lot of hand waving about the presumption of judicial review and an agency’s
But even if we could reasonably make the technical distinction the majority proposes and therefore preserve a narrow reading of the statutory bar, I cannot fathom why we would want to do so. Surely the concern is not to prevent the Board from instituting review of a patent so far outside the meaning of “covered business method patent” that it exceeds any reasonable interpretation of that term. As discussed in Part III, supra, courts have long recognized an exception to statutory bars on review when an agency plainly violates an unambiguous statutory mandate. And in any event, that is not even remotely the case here, where all three judges agree that the Board properly exercised its discretion to institute review of this CBM patent.
Rather, I fear the point of the majority’s position is to wrest from the PTO the final, authority to decide which patents are “covered business method patent[s]” appropriate for § 18 review. But that is not how Congress designed the AIA to work. Congress gave this court the authority to review the merits of the Board’s validity determinations and to ensure those decisions are correct under prevailing law. And it gave the PTO authority to decide which patents merit review in the first place, and insulated that decision from our review.
The majority’s desire to revisit the CBM requirement detracts from this statutory scheme and the intended benefits of § 18 reviews. As Congress recognized, § 18 was intended to “provide a cheaper, faster administrative alternative for reviewing business method patents.” Intellectual Ventures II LLC v. JP Morgan Chase & Co.,
Congress intended
Because we do not have jurisdiction to review the Board’s determination that Ver-sata’s patent is a “covered business method patent,” AIA § 18(d), I respectfully dissent-in-part.
. Indeed, Congress likely intended the term "covered business method patent” not as a