Document: 416 U.S. 396 94 S.Ct. 1800 40 L.Ed.2d 224 Raymond K. PROCUNIER, Director, California Department of Corrections, et al., Appellants,v.Robert MARTINEZ al. No. 72—1465. Argued Dec. 3, 1973. Decided April 29, 1974. Syllabus Appellees, prison inmates, brought this class action challenging prisoner mail censorship regulations issued by the Director Corrections and ban against use law students legal paraprofessionals to conduct attorney-client interviews with inmates. The regulations, inter alia, proscribed inmate correspondence that 'unduly complain(ed),' 'magnif(ied) grievances,' 'express(ed) inflammatory pollitical, racial, religious or other views beliefs,' contained matter deemed 'defamatory' 'otherwise inappropriate.' District Court held these unconstitutional under First Amendment, void for vagueness, violative Fourteenth Amendment's guarantee procedural due process, it enjoined their continued enforcement. court required an be notified rejection author allowed protest decision secure review a official than original censor. also inmates abridged right access courts its Appellants contend should have abstained from deciding constitutionality regulations. Held: 1. did not err in refusing abstain Pp. 400—404. 2. direct personal involves incidental restrictions on free speech both prisoners correspondents is justified if following criteria are met: (1) must further one more important substantial governmental interests security, order, rehabilitation (2) no greater necessary legitimate interest involved. 404—414. 3. Under standard invalidation was correct. 415 416. 4. censor withhold delivery particular letter accompanied minimum safeguards arbitrariness error, requirements specified were unduly burdensome. 417—419. 5. conducted paraprofessionals, which limited prospective interviewers who posed some colorable threat security those thought especially dangerous created arbitrary distinction between employed attorneys associated school programs (against whom operate), constituted unjustifiable restriction inmates' courts. Johnson v. Avery, 393 483, 89 747, 21 718, 419—422. 354 F.Supp. 1092, affirmed. W. Eric Collins, San Francisco, Cal., appellants. William Bennett Turner, appellees. Mr. Justice POWELL delivered opinion Court. 1 This case concerns certain promulgated appellant Procunier his capacity as Corrections. Appellees behalf themselves all penal institutions Department's jurisdiction challenge rules relating Pursuant 28 U.S.C. § 2281 three-judge United States convened hear appellees' request declaratory injunctive relief. That entered summary judgment enjoining enforcement question ordering appellants submit new court's approval. 1092 (N.D.Cal.1973). Appellants' first revisions resulted counterproposals appellees order May 30, 1973, requiring modification proposed rules. second set revised approved July 20, over objections. While pending before Court, appeal contest holding unconstitutional. 2 We noted probable jurisdiction. 412 948, 93 3013, 37 1000 (1973). affirm. 3 * we consider Director's restricting persons licensed holders public office censored nonconformity standards. Rule 2401 stated general premise 'a privilege, . ..'1 More detailed implemented policy. 1201 directed write letters they complain' 'magnify grievances.'2 1205(d) defined contraband writings 'expressing political, beliefs ..'3 Finally, 2402(8) provided 'may send receive pertain criminal activity; lewd, obscene, defamatory; contain foreign matter, otherwise inappropriate.'4 4 Prison employees screened incoming outgoing violations No help members mailroom staff decide whether contravened any rule When employee found objectionable, he could take actions: refuse deliver return author; disciplinary report, lead suspension privileges sanctions; (3) place copy contents prisoner's file, where might factor determining inmate's work housing assignments setting date parole eligibility. 5 authorized protected expression without adequate justification violation Amendment vagueness. failed provide error correspondence. Consequently, 6 contended questions. In advanced reason abstention assertion federal defer basis comity. properly rejected suggestion, noting mere possibility state declare ground abstention. Wisconsin Constantineau, 400 433, 439, 91 507, 511, 27 515 (1971). 7 now vacate remand instructions two arguments presented it. First, vagueness uninterpreted statute regulation proper According appellants, '(t)he very statement district vague constitutes compelling abstention.' Brief 8—9. As made plain Baggett Bullitt, 377 360, 84 1316, 12 (1964), however, every abstention.5 But need appellants' contention controlled analysis Baggett, short answer argument neither challenged nor invalidated solely asserted, found, permitted constitutionally justification. light successful attack Court's conclusion unconstitutionally hardly 'constitutes 8 rely Cal.Penal Code 2600(4), assures books, magazines, periodicals.6 Although advance interpretation application governing avoid modify constitutional questions decided below. Thus seek establish essential prerequisite abstention—'an uncertain issue law,' resolution may eliminate materially alter question.7 Harman Forssenius, 380 528, 534, 85 1177, 1181, 14 50 (1965). persuaded. 9 A 2600(4) would substantially here. does provision purporting regulate correspondence, It only preserves 'newspapers, periodicals, books' authorizes officials exclude 'obscene publications writings, containing information concerning where, how, such obtained .' (emphasis added). And meaning language reinforced recent legislative history. 1972, bill introduced Legislature restrict adding entirely subsection 2600. legislature passed bill, but vetoed Governor Reagan. history, think reasonable Moreover, mindful high cost when facial repugnance Amendment. Zwickler Koota, 389 241, 252, 88 391, 397, 19 444 (1967); U.S., at 379, S.Ct., 1326. therefore proceed merits. A. 10 Traditionally, adopted broad hands—off attitude toward problems administration. part policy product various limitations scope conditions institutions.8 fundamentally, springs complementary perceptions about nature efficacy judicial intervention. administrators responsible maintaining internal discipline, securing unauthorized escape, rehabilitating, extent human inadequate resources allow, placed custody. Herculean obstacles effective discharge duties too apparent warrant explication. Suffice say prisons America complex intractable, and, point, readily susceptible decree. Most require expertise, comprehensive planning, commitment resources, peculiarly within province executive branches government. For reasons, ill equipped deal increasingly urgent administration reform.9 Judicial recognition fact reflects healthy sense realism. involved, deference appropriate authorities. 11 restraint cannot encompass failure cognizance valid claims arising institution. practice offends fundamental guarantee, will duty protect rights. 486, 749, 718 (1969). case. deficient several respects, principal command applied Amendment.10 us freedom speech. has previously addressed question, tension traditional regarding complaints rights led adopt variety widely inconsistent approaches problem. Some maintained hands-off posture face challenges mail. E.g., McCloskey Maryland, 337 F.2d 72 (CA4 1964); Lee Tahash, 352 970 (CA8 1965) (except insofar discriminate racial group); Krupnick Crouse, 366 851 (CA10 1966); Pope Daggett, 350 296 1965). Another lack support 'in rational acceptable concept system.' Sostre McGinnis, 442 178, 199 (CA2 1971), cert. denied sub nom. Oswald Sostre, 405 978, 92 1190, 31 254 (1972). At extreme been willing demonstration 'compelling interest' justify Jackson Godwin, 529 (CA5 1968) (decided equal protection grounds); Morales Schmidt, 340 544 (WD Wis. 1972); Fortune Society 319 901 (SDNY 1970). Other phrase similarly demanding terms 'clear present danger.' Wilkinson Skinner, 462 670, 672 673 1972). there intermediate positions, most notably view 'regulation restricts enjoyed had imprisoned related reasonably necessarily advancement justifiable purpose.' Carothers Follette, 314 1014, 1024 1970) (citations omitted). See Gates Collier, 349 881, 896 (ND Miss. LeMon Zelker, 358 554 13 array disparate absence generally accepted testing disserve competing stake. On hand, implicated given haphazard protection. other, uncertainty makes impossible correctional anticipate what them invites repetitive, piecemeal litigation result unnecessarily perpetuate involvement affairs Our task formulate responsive concerns. B begin our somewhat different taken considered question. part, dealt involving 'prisoners' rights.' exception. 'the applicability .,' F.Supp., 1096, parties reflect assumption requires assessment claim freedoms. inquiry unnecessary. occasion individual's survives incarceration, narrower hand. particularized communicating them,11 implicates prisoners. 15 Communication accomplished act writing words paper. Rather, effected read addressee. Both result, communication impinges each. Whatever status uncensored outsider, latter's grounded depend nonprisoner correspondent intended recipient letter, addressee well sender derives Amendments unjustified interference communication. Lamont Postmaster General, 381 301, 1493, 398 (1965); accord, Kleindienst Mandel, 408 753, 762—765, 2576, 2581—2583, 33 693 (1972); Martin City Struthers, 141, 143, 63 862, 863, 87 L.Ed. 1313 (1943). do here difficult so-called 'right hear' third-party standing means inextricably meshed. wife her husband wanted suffered abridgment him results him. either event, works consequential 16 Accordingly, reject attempt merely reference assumptions Into category falls 'an social something fundamentally brother.' 19. line undemanding fail recognize liberties citizens turn guidance, cases rights,' decisions dealing problem imposed furtherance activities. 17 Tinker Des Moines Independent Community School District, 503, 506, 733, 736, 731 (1969), guarantees 'applied special characteristics environment.' concerned interplay affirming authority officials, consistent safeguards, prescribe control schools.' Id., 737. overruling prohibiting wearing antiwar armbands, undertook careful orderly ensure afforded maximum requirements. same approach followed Healy James, 169, 2338, 266 (1972), refusal college grant group wished organize local chapter Students Democratic (SDS), national student organization political activism campus disruption. identification SDS, purportedly philosophy group, administration's fear future, unspecified disruptive activities incursion association. prevent disruption, id., 189—190, n. 2350, remanded determination refused accept conduct. 18 O'Brien, 391 367, 1673, 20 (1968), occasioned exercise power conscript men military service. O'Brien burned Selective Service registration certificate steps courthouse dramatize opposition draft country's Vietnam. He convicted violating recently amended prohibit knowing destruction mutilation certificates. argued purpose effect amendment abridge statutory unconstitutional, enacted O'Brien's activity involved 'conduct' rather pure 'speech,' define away concern, presence communicative intent rendered actions immune govermental regulation. Instead, enunciated four-part test: '(a) government sufficiently Government; furthers interest; unrelated suppression expression; alleged freedoms interest.' 377, 1679. Of course, none precedents directly controls instant prohibited having connection differentiate 'speech' 'nonspeech' elements single course conduct, little relevance context educational institutions, circumstance stake broader terms, expression. analogous inquiry. hand arises prisons. One primary functions preservation societal through law, maintenance task. identifiable discipline,12 institutional escape entry, weight professional seems correspond outsiders advances retards goal rehabilitation,13 justifies imposition restraints Perhaps obvious example escaped plans activity, prison. Similarly, transmit encoded messages. less possibilities come mind, survey range circumstances warranted demands exist time kinds country. determine impermissible liberties. 22 Applying teachings prior context, hold met. simply unflattering unwelcome opinions factually inaccurate statements. show authorizing rehabilitation. Second, limitation nevertheless invalid sweep broad. mean, certainty adverse consequences flow letter. latitude anticipating allowing environment administrator's duty. identified above.14 C 23 standard, affirm authorized, statements 'inflammatory views,' These fairly invited apply own prejudices standards censorship. Not surprisingly, used extraordinary discretion suppress criticism. example, institution jurisdiction, checklist 'criticizing policy, officials,' sergeant deposition 'belitting system anything connected Corrections.' Correspondence 'disrespectful comments,' 'derogatory remarks,' like. 24 way Indeed, heart position be. misconception affirmatively; underlies discussion attack. sole defense prohibition inappropriate' 'within administrators.' 21. grievances' 'as precaution flash riots rehabilitation.' 22. suggest how magnification grievances undue complaining, presumably occurs letters, possibly riots, specify contribution criminals. defend views' '(s)uch clearly presents danger ..' regulation, narrowly drawn reach material encourage violence letters. short, far Court.15 D 25 agree safeguards. plainly 'liberty' even though qualified necessity imprisonment. such, invasion. Board Regents Roth, 564, 2701, 548 Perry Sindermann, 593, 2694, 570 written him, opportunity decision, referred person originally disapproved appear burdensome, so contend. respect II 26 Administrative MV—IV—02, provides pertinent part: 'Investigators attorney-of-record confined two. Such investigators State Bar. Designation Attorney.' By bar private investigators, absolute interview clients. fact, delegate obtaining prisoners' signatures documents. reasoned agree. 29 process corollary requirement unlawful convictions redress assistance attorneys. Regulations practices unjustifiably obstruct availability representation aspects invalid. Ex parte Hull, 312 546, 61 640, 1034 (1941). 30 inhibited indigent remoteness many visit client timeconsuming undertaking. deter lawyers representing afford pay traveling investigators. agreed waste efficaciously working problems. Allowing reduce concluded burden recognized, end inquiry, proposal facilitate burdened weighed regard judges give expertise discretionary officials. paraprofessional personnel absolute. Its dangerous. Nor shown restrictive administrative screening monitoring visitors. 32 practicing providing prisoners.16 flatly sort attorneys, freely participants number enter meet largely unsupervised admitted check verification enrollment program. mean admit others, categories reveal real sweeping MV—IV—02. erred invalidating mandated There struck down advising assisting another preparation Given inadequacy alternative sources assistance, denying illiterate poorly educated vindicate claims. impermissibly despite insignificant preventing establishment structures unscrupulous jailhouse attendant discipline follow. countervailing is, anything, persuasive 34 35 Judgment 36 MARSHALL, BRENNAN joins, concurring. I concur separately emphasize my authorities open explicitly reserved course. 38 Holmes observed half century ago, mails almost much tongues Milwaukee Social Publishing Co. Burleson, 255 407, 437, 41 352, 363, 65 704 (1921) (dissenting opinion), quoted approval Blount Rizzi, 410, 416, 423, 428, 498 305, 1495, shed basic gate.1 'retains ordinary citizen except expressly, implication, law.' Coffin Reichard, 143 443, 445 (CA6 1944).2 are, view, entitled medium guaranteed right.3 39 clear seriously infringed permitting surely restrained knowledge word jailors message find into object ridicule, reprisals. similar pall cast correspondents. Cf. Talley California, 362 60, 65, 80 536, 539, 559 (1960); NAACP Alabama, 357 449, 462, 78 1163, 1171, 1488 (1958). intrusion can showing chosen effectuate State's '(e)ven substantial, pursued broadly stifle achieved.' Shelton Tucker, 364 479, 488, 81 247, 231 (1960).4 each 'be environment," 180, 2345, exigencies without. Barnett Rodgers, 133 U.S.App.D.C. 296, 301—302, 410 995, 1000—1001 (1969); Rowland Sigler, 327 821, 827 (Neb.), aff'd, 452 1005 1971). safety, applicable community large. considerations reasons imperatively justifying deprivation issue. supra, 2345; 42 asserts justifications argues weapons narcotics smuggled via mail, certainly concern reading Even stemming traffic equally physical tests fluoroscoping letters.5 If inadequate, opening inspecting—and reading—incoming suffice.6 43 suggested detect plans. everyone's listening phone conversations off chance schemes being concocted. great speculative concern. seriousness escapes planned arranged undermined unmonitored during surreptitious discussed undetected.7 believe plot hatched seize letters; blanket 44 occasionally asserted useful tool rehabilitative process. therapeutic model corrections increasing criticism ideal reality.8 Assuming validity model, demonstrate chilling expression, serves purpose. walls serve restrain offenders isolate them. few ties retain communities familes—ties success later outside world.9 Judge Kaufman, Second Circuit, observations particularly apropos benefit (1971) (en banc): 45 "Letter keeps contact world, helps morbidity hopelessness produced life isolation, stimulates natural impulses, make contributions better mental attitudes reformation."10 46 and: 47 "The harm gainsaid. Inmates lose world become wary placing intimate thoughts criticisms artificial increase alienation society advised."11 48 today agrees Ante, 412.12 49 Balanced values society—values 'do dross unfree one.' F.2d, 199. uninterrupted interchange ideas upon democratic thrives. victim indirect reprisal inherent lost criticize jailors. vehicles informing existence days strife plight To sustain chills inform odds tenets speech.13 needs polity spirit—a spirit self-expression. integral development identity. desire affront worth dignity.14 Stanley Georgia, 394 557, 1243, 542 greatest displeasure indignity put him.' J. Milton, Aeropagitica, (Everyman's ed. 1927). gates slam behind inmate, quality; mind closed ideas; intellect cease feed opinions; yearning self-respect end; quest self-realization concluded. identity dehumanizing environment. Whether O. Henry stories jail cell frightened young family, role precious satisfy yearnings spirit. 51 DOUGLAS joins Part opinion. 52 DOUGLAS, concurring judgment. 53 joined MARSHALL's because abundantly foremost among Bill Rights country, detention, Prisoners still 'persons' unless liberty curtailed procedures 54 Chief Hughes Stromberg 283 359, 532, 75 1117 Due Process Clause Fourteenth, customary rest foundation entire Free press judgment, pre-eminent immunities citizens. provided: 'The sending receiving right, you your cause privileges.' 'INMATE BEHAVIOR: Always yourself manner. Do fight horseplay encounters regular athletic agitate, complain, magnify grievances, behave violence.' undisputed phrases 1205 contraband: 'd. Any voice recordings expressing immediate possession originator, originator's subvert display circulation.' 'not rule, which, circulated warden superintendent tend property, shall supervision.' complaint, included prohibitions 'prison gossip inmates.' Before provisions deleted, 'contain matter' substituted stead. loyalty oaths condition employment. applying doctrine distinguished attacks. Where turns unsettled adjudication. 376—377, 1325—1326. Abstention appropriate. Where, case, individuals applies understand wish forswear arguably required. 378, adjudication difficulty. Rather 'extensive adjudications, impact factual situations,' bring bounds permissible certainty.' Ibid. 2600 sentence imprisonment term suspends civil sentenced allows partial restoration Adult Authority. then declares, 'This section construed deprive rights, accordance laws state: '(4) purchase, receive, newspapers, books distribution Post Office. section, obscene obtained; character tending incite murder, arson, riot, violent racism, form violence; gambling lottery. argue correctness demonstrated disposition Count complaint. Sixth Amendments. discovered Supreme attacked 2600, provides: (an inmate) '(2) correspond, confidentially, member Bar, holder office, inspect search contraband.' stay subsequent re Jordan, Cal.3d 930, 103 Cal.Rptr. 849, 500 P.2d 873 (1972) (holding 2600(2) barred correspondence), moot. attorney-client, quite irrelevant Subsection speaks says nothing informed presently Note, Decency Fairness: An Emerging Role Reform, 57 Va.L.Rev. 841, 842—844 They suited front-line agencies consideration infinite complaints. justice fully impaired burgeoning frivolous alleviating problem, explore instituting grievances. 59 A.B.A.J. 1125, 1128 Third Circuit Conference meeting October 15, addressed, suggestions (i) needless issues; (ii) magistrates sent hearings findings fact. express merit proposal, indicate prompt thoughtful worsening situation. Specifically, lawful Amendments, fatally vague, erroneous Different play mass mailings. raised facts, resolution. address temporary sanction (usually regimen solitary confinement) Policy Statement 7300.1A Federal Bureau Prisons sets forth Bureau's entrusted recognizes primarily rehabilitation: 'Constructive, wholesome valuable overall time, exercised institution, and/or community-at-large.' recommended guideline Association Correctional Administrators August 23, echoes activity: 'Correspondence close friends, associates organizations beneficial morale good adjustment community.' controlling, policies well-run relevant type restriction. specifies prisons, outgoing, inclusion material: '(1) violate postal I.e., threats, blackmail, plots escape. Discussions '(3) business while confinement. go point enable property funds legitimately committed Thus, refinancing mortgage home sign insurance papers, operate Letters codes attempts circumvent subject rejection. '(5) Insofar possible, English, effort accommodate unable English whose English. sophistication relationship factors permitted.' After developed court. Supp. App. 194—200, 211. review, indicative solution govern correspondence: 'CORRESPONDENCE 'A. Criteria Disapproval Inmate Mail '1. Outgoing 'Outgoing mailing content whole significant categories: 'a. contains threats activity. 'b. threatens blackmail extortion. 'c. out institutions. 'e. 'f. 'g. code understood reader. 'h. solicits gifts goods money family. 'i. obscene. 'j. communicated create being. foregoing permission obtained. '2. Incoming 'Incoming receipt severe psychiatric emotional disturbance correspondents, '3. Limitations 'Disapproval done institution's after consultation caseworker. disapprove finding likely affect rehabilitation, ameliorating inmate. personnel. '4. Notice signed notice stating disapproval indicating portion portions causing sender. rejected, sender's name. Material violates paragraph file. file lawfully department However, proceedings DP—1003 rules.' Apparently, established, embodied See, e.g., Cruz Beto, 319, 1079, 263 Cooper Pate, 378 1733, 1030 (1964); Brown Peyton, 437 1228, 1230 1971); 901, 903 Accord, Moore Ciccone, 459 574, 576 Nolan Fitzpatrick, 451 545, 547 (CA1 Brenneman Madigan, 343 128, 131 Cal. Burnham Oswald, 342 880, 884 (WDNY 1023 1971) banc); Preston Thieszen, 341 785, 786—787 Wis.1972); cf. Gray Creamer, 465 179, 186 (CA3 Palmigiano Travisono, 317 776 (RI 1970); supra. test thus essentially Court: '(T)he (and) involved.' 413. Marsh Moore, 325 392, 395 (Mass.1971). 578 (Lay, J., concurring); Jones Wittenberg, 330 707, 719 Ohio aff'd Metzger, 456 854 Mitford, Kind Usual Punishment: Business National Advisory Commission Criminal Standards Goals, 67—68 Plamigiano 791. Singer, Censorship Prisoners' Constitution, 56 1051, 1054 (1970). Various studies strongly Standard 2.17, pp. 66—69 (1973); see System Study: Institutions (1971); Center Justice, Boston University Law School, Model Rules Responsibilities, IC—1 IC—2, 46—47 547—548. Emerson, Toward General Theory Yale L.J. 877, 879—880 (1963).

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