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UNITED STATES DISTRICT COURT

FOR THE DISTRICT OF COLUMBIA

MATTHEW SLUSS,

Plaintiff,

v. Civil Action No. 19-3658 (JEB)

UNITED STATES DEPARTMENT OF 

JUSTICE, et al.,

Defendants.

 

MEMORANDUM OPINION

Plaintiff Matthew Sluss, a citizen of both the United States and Canada, would prefer to 

serve the remainder of his 33-year sentence north of the border — or not serve it at all. Believing 

a Canadian prison would grant him parole, Sluss has applied to the Federal Bureau of Prisons for 

three separate transfers, each of which was denied. After the most recent denial, he brought this 

pro se action under the Religious Freedom Restoration Act, alleging that the Government’s refusal 

to transfer him impermissibly burdens his exercise of his Messianic Sabbatarian religious faith. 

The Government now moves to dismiss, rejoining that there is no less-restrictive way it can further 

its compelling interest in Sluss’s serving his sentence. Agreeing that the claim is facially deficient 

in that and other respects, the Court will grant the Motion.

I. Background

On this Motion to Dismiss, the Court limits its discussion to the facts pled in the 

Complaint, except where citing public records. On March 12, 2012, Sluss was sentenced to 33 

years in prison on child-pornography charges. See ECF No. 15-1 (Def. MTD) at 1. He is 

currently incarcerated at the Petersburg-Medium Federal Correctional Complex in Virginia. See
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ECF No. 1 (Compl.), ¶ 5. Plaintiff identifies as a Messianic Sabbatarian and, “[a]s such, he 

keeps the Jewish Torah as well as the new covenant.” Id., ¶ 6.

Sluss has identified numerous tenets of his faith that he claims he is not able to fully 

exercise in prison. He states that he is obligated to consume wine and Challah bread each 

Friday, to drink wine, eat lamb, and sleep outdoors “amongst trees” on certain holy days, and 

generally to care for his elderly father in Canada. Id., ¶¶ 9–17. Understandably, the Department 

of Justice is unenthused about the prospect of allowing federal prisoners to drink alcohol, camp 

outdoors, and travel internationally, and it has offered Plaintiff grape juice and turkey in lieu of 

wine and lamb and not permitted him to travel to Canada or sleep outdoors. Id., ¶ 18. Because 

Sluss is requesting only a prison transfer, not the accommodation in his current prison of any 

specific religious practice, the Court need not delve into the merits of each desired practice and 

the adequacy of offered alternatives.

For reasons unclear to the Court, Sluss is certain that if he were transferred to a Canadian 

prison, “he would be immediately eligible for day parole and full parole,” which would eliminate 

any barriers to his practice of religion. Id., ¶ 43. He filed transfer requests in 2013, 2016, and 

2018, all of which were denied. See ECF No. 15-2 (Declaration of Paula A. Wolff), ¶ 9.

Plaintiff challenged the first of those denials, but the suit was dismissed. Id., ¶ 10. In this 

current action, challenging the third denial, he brought a RFRA claim for the first time. See

Compl., ¶¶ 2, 37–45. His Complaint also included a cause of action under the Administrative 

Procedure Act, alleging that the Government had improperly considered his request under the 

wrong standard. Id., ¶¶ 47–49. After the Government explained the discrepancy to his 

satisfaction, Sluss agreed to withdraw his APA claim. See ECF No. 21 (Pl. Opp.) at 9–10.
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II. Legal Standard

Under Federal Rule of Civil Procedure 12(b)(6), a court must grant a motion to dismiss 

when the complaint “fail[s] to state a claim upon which relief can be granted.” In evaluating a 

motion to dismiss, the Court must “treat the complaint’s factual allegations as true and must 

grant plaintiff the benefit of all inferences that can be derived from the facts alleged.” Sparrow 

v. United Air Lines, Inc., 216 F.3d 1111, 1113 (D.C. Cir. 2000) (citations and internal quotation 

marks omitted); see also Ashcroft v. Iqbal, 556 U.S. 662, 678 (2009). A court need not accept as 

true, however, “a legal conclusion couched as a factual allegation,” nor an inference unsupported 

by the facts set forth in the complaint. Trudeau v. FTC, 456 F.3d 178, 193 (D.C. Cir. 2006) 

(quoting Papasan v. Allain, 478 U.S. 265, 286 (1986)). Although “detailed factual allegations” 

are not necessary to withstand a Rule 12(b)(6) motion, Bell Atl. Corp. v. Twombly, 550 U.S. 

544, 555 (2007), “a complaint must contain sufficient factual matter, [if] accepted as true, to 

state a claim to relief that is plausible on its face.” Iqbal, 556 U.S. at 678 (citation and internal 

quotation marks omitted). A plaintiff may survive a Rule 12(b)(6) motion even if “recovery is 

very remote and unlikely,” but the facts alleged in the complaint “must be enough to raise a right 

to relief above the speculative level.” Twombly, 550 U.S. at 555–56 (quoting Scheuer v. 

Rhodes, 416 U.S. 232, 236 (1974)).

A motion to dismiss under Rule 12(b)(6) must rely solely on matters within the 

pleadings, see Fed. R. Civ. P. 12(d), which includes statements adopted by reference as well as 

copies of written instruments joined as exhibits. See Fed. R. Civ. P. 10(c). Documents that a 

defendant attaches to a motion to dismiss are “part of the pleading[s],” id., if they are integral to 

a plaintiff’s claim, they are referred to in the complaint, and their authenticity is undisputed. 

Kaempe v. Myers, 367 F.3d 958, 965 (D.C. Cir. 2004); see also Hinton v. Corr. Corp. of Am., 
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624 F. Supp. 2d 45, 46–47 (D.D.C. 2009). The Court may thus consider those materials on a 

motion to dismiss without treating the motion “as one for summary judgment under Rule 56.” 

Fed. R. Civ. P. 12(d); see also Marshall v. Honeywell Tech. Solutions, Inc., 536 F. Supp. 2d 59, 

65 (D.D.C. 2008). 

III. Analysis

RFRA mandates that the Government may not substantially burden a person’s exercise 

of religion unless it does so to further a “compelling governmental interest” by the “least 

restrictive means.” 42 U.S.C. § 2000bb-1(b). Sluss here asserts that: (1) the Government has 

substantially burdened his religious exercise, (2) that it cannot show denying his transfer request 

“furthers any compelling interest,” and (3) even if it could, denial “is not the least restrictive 

means” of furthering that interest. See Compl., ¶¶ 37–38, 42. His proposed “less restrictive 

alternative” would be to transfer him to a Canadian prison, where “he would be immediately 

eligible for day parole and full parole.” Id., ¶ 43. Even if Plaintiff has established a substantial 

burden, he cannot prevail here, as the Government has a compelling interest in his serving his 

sentence in the United States, and denying his transfer request is the least restrictive means of 

furthering this interest. 

A. Substantial Burden

A person who brings a challenge under RFRA bears the initial burden of proving that: (1) 

the Government’s policy or action implicates her religious exercise, (2) the relevant religious 

exercise is grounded in a sincerely held religious belief, and (3) the policy or action substantially 

burdens that exercise. See Standing Rock Sioux Tribe v. U.S. Army Corps of Engineers, 239 F. 

Supp. 3d 77, 88 (D.D.C. 2017). At the outset, Plaintiff has alleged that the Government’s 

“denials and refusals” of his religiously motivated requests to drink wine, eat lamb, sleep 

outdoors, and care for his father “substantially burden[] Mr. Sluss’s exercise of religion.” 
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Compl., ¶ 18. Under RFRA, a government restriction imposes a substantial burden when it puts 

“substantial pressure on an adherent to modify his behavior and to violate his beliefs.” 

Kaemmerling v. Lappin, 553 F.3d 669, 678 (D.C. Cir. 2008) (quoting Thomas v. Review Bd., 

450 U.S. 707, 718 (1981)). This bar is not high, and another district court has found that is 

cleared when the Government denies a prisoner wine for religious ceremonies. See Sample v. 

Lappin, 424 F. Supp. 2d 187, 194–95 (D.D.C. 2006). Accepting as true Plaintiff’s factual 

representations that his beliefs are sincere and of a religious nature, the prison has hindered his 

religious exercise and — for the purposes of this Motion — he has established that the 

Government’s policies have imposed a substantial burden. 

Yet even if the Government has substantially burdened Plaintiff’s exercise of religion, the 

Court is skeptical that this is a proper RFRA claim. The problem with Plaintiff’s Complaint is 

that he is not seeking the amelioration of any of these restrictions at FCI Petersburg; he is instead 

demanding a transfer that he believes would alleviate the burden they impose. The statute does 

not, however, provide for freeing inmates from prison. If he is correct that a transfer would 

facilitate his immediate release, such relief appears beyond the scope of what RFRA was 

designed to accommodate. See United States v. Marks, 947 F. Supp. 858, 865 (E.D. Pa. 1996)

(RFRA was intended “to assure that prison officials make accommodations to the sincere 

religious practices of prisoners in prison. Accommodation has its limits, however. One such 

limit surely must be that prisoners are not to be released from incarceration because their 

religious practices are more conveniently practiced outside of jail.”). On the other hand, if Sluss

is incorrect and a transfer would not lead to his early release, then he has failed to offer any 

indication of how the transfer would reduce the burden on his religious exercise. Sluss has 
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nearly 24 years remaining on his 33-year sentence and cannot weaponize RFRA as a Trojan 

Horse to escape the walls of federal prison. 

B. Compelling Interest and Least Restrictive Means 

In any event, Plaintiff also cannot show that the refusal to transfer him does not further a 

compelling government interest by the least restrictive means. At the outset, Sluss is mistaken in 

his belief that the Court’s inquiry must end once he has established a substantial burden. His 

Opposition states that once Plaintiff has pled sincere religious beliefs and a substantial burden, 

“he has stated a plausible claim for relief under RFRA . . . No more is required of him.” Pl. 

Opp. at 3. The Court in Kaemmerling, however, was clear that even if a plaintiff does “allege a 

substantial burden on his exercise of religion, his complaint w[ill] still fail to state a claim for 

relief [if] the burden is in furtherance of a compelling governmental interest and is the least 

restrictive means of furthering that . . . interest, satisfying the RFRA exception.” 553 F.3d at 680 

(internal quotation marks omitted). Sluss, accordingly, cannot survive Defendant’s Motion if the 

burden complained about — the denial of his transfer request — furthers a compelling 

government interest by the least restrictive means. 

This is indeed Plaintiff’s fate, because mandating his transfer would undermine the 

Government’s compelling interest in placing inmates in the appropriate facilities to ensure the 

security of the prison and the community. In Wardrick v. Federal Bureau of Prisons, No. 19-

184, 2020 WL 1821133 (D.D.C. Apr. 10, 2020), Judge Royce Lamberth of this district dismissed 

a similar RFRA complaint for failure to state a claim. The plaintiff, a federal prisoner with 18

months remaining on his sentence, had requested a transfer from a medium-security prison to a 

Residential Reentry Center in order to be closer to family and more freely practice his Christian 

faith. Id. at *1. Judge Lamberth found that “BOP possesses a compelling governmental interest 

to place inmates in appropriate correctional facilities to ensure the safety of other inmates and the 
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general community” and that granting the transfer “would significantly hinder BOP’s ability to 

weigh the appropriate factors” it considers in “deciding where inmates ought to serve the 

duration of their sentences.” Id. at *4–5. “Far from furthering BOP’s compelling governmental 

interest,” he found that “the relief plaintiff s[ought] undermines that interest” and dismissed the 

case for failure to state a claim. Id. at *4.

That same logic applies to this case. The Government has a compelling interest in 

deciding among different facilities in this country. It has a similarly strong interest in deciding 

whether to transfer prisoners beyond our borders, specifically where, as Sluss contends, he could 

obtain early parole. Enforcing properly meted out sentences ensures respect and order in the 

criminal-justice system. There is, furthermore, no less restrictive means in this case where the 

choice is binary: transfer him to Canada for parole or retain him here. Sluss has thus failed to 

state a claim under RFRA. 

IV. Conclusion

For the foregoing reasons the Court will grant Defendants’ Motion to Dismiss. A 

separate Order so stating will issue this day.

/s/ James E. Boasberg 

 JAMES E. BOASBERG

 United States District Judge

Date: April 19, 2021