Document: 417 U.S. 843 94 S.Ct. 2811 41 L.Ed.2d 514 William B. SAXBE, Attorney General of the United States, et al., Petitioners,v.The WASHINGTON POST CO. al. No. 73—1265. Argued April 17, 1974. Decided June 24, Syllabus The Policy Statement Federal Bureau Prisons prohibiting personal interviews between newsmen and individually designated inmates federal medium security maximum prisons does not abridge freedom press that First Amendment guarantees, Pell v. Procunier, 817, 2800, 495, since it 'does deny access to sources information available members general public,' but is merely a particularized application rule nobody may enter prison designate an inmate whom he would like visit, unless prospective visitor lawyer, clergyman, relative, or friend inmate. Pp. 846 850. 161 U.S.App.D.C. 75, 494 F.2d 994, reversed remanded. Sol. Gen. Robert H. Bork, for petitioners. Joseph A. Califano, Jr., Washington, D.C., respondents. Mr. Justice STEWART delivered opinion Court. 1 respondents, major metropolitan newspaper one its reporters, initiated this litigation challenge constitutionality 46(b) 1220.1A Prisons.1 At time case was in District Court Appeals, regulation prohibited any inmates. Solicitor has informed recently amended 'to permit at institutions can be characterized as minimum security.'2 prohibition with remains effect, however, three-quarters prisons, i.e., all institutions, including two involved case. 2 In March 1972, respondents requested permission from petitioners, officials responsible administering conduct several specific Lewisburg, Pennsylvania, Danbury, Connecticut. petitioners denied such on authority 1220.1A. thereupon commenced suit these denials which they were predicated. Their essential contention abridges protection accords newsgathering activity free press. agreed held Statement, insofar totally involved, violated Amendment. Although court acknowledged institutional considerations could justify some press-inmate interviews, ordered cease enforcing blanket and, pending modification consider interview requests individual basis withhold . only where demonstrable administrative disciplinary dominate.' 357 F.Supp. 770, 775 (DC 1972). 3 appealed Court's judgment Appeals Columbia Circuit. We stayed order completion appeal, sub nom. Kleindienst Washington Post Co., 406 912, 92 1761, 32 112 (1972). first before it, remanded additional findings fact particularly reconsideration light intervening decision Branzburg Hayes, 408 665, 2646, 33 626 155 283, 477 1168 On remand, conducted further evidentiary hearings, supplemented fact, reconsidered conclusions law other recent decisions urged upon it. due course, reaffirmed original decision, 779 1972), again Appeals. 4 affirmed It purported do, 'be administrator directly concerned, based either demonstrated behavior inmate, special conditions existing institution requested, both, presents serious risk problems.' 87 88, 1006—1007 (1974). Any face-to-face Amendment's freedom. Because important constitutional question because apparent conflict approach Circuit Ninth Circuit,3 we granted certiorari. 415 956, 1482, 39 571 5 policies regarding visitations do differ significantly California considered 495. As noted, 'inmates' families, their attorneys, religious counsel are accorded liberal visitation privileges. Even friends allowed although privileges appear somewhat more limited.' U.S.App.D.C., 78, F.2d, 997. Other than limited groups professional ties inmates, public permitted under Bureau's policy consenting This applied even hand visitors, newsmen, who, public, visit family members. But, insist visiting have no relationship. There indication record been interpreted prohibit person, who otherwise eligible doing so member press.4 6 Except limitation substantial observe report find there. Indeed, journalists given significant respects exceeds afforded public. For example, permits representatives tour photograph facilities.5 During tours newsman brief might encounter.6 addition, virtually unlimited written correspondence each other.7 Outgoing neither censored nor inspected. Incoming mail inspected contraband statements inciting illegal action. Moreover, required by 'give possible assistance' 'in providing background report' concerning complaints.8 7 also conceded 'has randomly selected group inmates.' result, reporter respondent Lewsiburg prison. Finally, constant turnover population, clear there always large released prisoners both source about prisons.9 8 Thus, part attempt conceal prevailing prisons. prearranged motivated same underlie § 115.071 Department Corrections Manual, Procunier Hillery, experience suggests interest often 'concentrated relatively small number (become) virtual 'public figures' within society gai(n) disproportionate degree notoriety influence among fellow Pell, U.S., 831—832, S.Ct., 2808. result those conspicuously publicized Id., 4b(12). 9 General's informs us 'approximately one-half population day will following 12 months. average 23,000, approximately 12,000 year.' repeated contacts tend become problems engulf portion sought meet problem decreeing selective whereby likely lead problems. expert spawn discipline morale own engendering hostility resentment refused fellows. Director testified 'one very basic tenets sound correctional administration' treat incarcerated (the) far possible, equally.' is, entitled great deference. case, unnecessary engage delicate balancing penal against legitimate demands sole imposed justified what 'the truism generally 80, 999. See Adderley Florida, 385 39, 41, 242, 243, 17 149 (1966). regard, place less advantageous position generally. total surpasses constitutionally indistinguishable thus fully controlled holding '(N)ewsmen right beyond public.' 834, 2810. proposition 'that Constitution imposes government affirmative duty make finds support words Court.' 834—835, id., 835, 2810, hold guarantees. Accordingly, proceedings consistent opinion. ordered. Judgment POWELL, BRENNAN MARSHALL join, dissenting. today upholds promulgate enforce absolute ban news media.1 my view impermissibly burdens freedoms. My analysis proceeds follows. Part I addresses nature effect policy. II concerns underpinnings respondents' attack III considers justifications appropriate standard review, IV surveys factors formulating acceptable V contains concluding remarks. * party blackout establishes official prisoner-press communications, many commendably facilitates dissemination institutions. Inmate letters addressed media opened censored, incoming content incite conduct. Furthermore, officially encourages facilities programs issue interviews. That set forth 4b(6) Statement: 'Press shall apply seeks interview. However, conversation whose identity made if discussion facilities, activities.' explicate distinction 'interview' 'conversation,' subject explored found 'conversation' occurs when taking supervised stops ask like. brief, spontaneous encountered subjects 'institutional programs, An 'interview,' contrast, private meeting specifically unrestricted matter lasts sufficient full discussion.2 nature. applies without regard characteristics particular purpose interview, then question. equal rigor every facility administered Bureau, community treatment centers well penitentiaries. By letter dated 16, 1974, subsequently modified exempt charge affects one-quarter remainder, intends continue established remanding (1972), directed determine 'extent accurate effective reporting critical dependence opportunity interviews.' 284, 1168, 1169 hearing fact. Thanks effort Court, unusually detailed informative account communications.3 received testimony point six knowledgeable persons.4 All crucial context. A depends much way trial attorney relies cross examination. Only put respond his answer immediate follow-up pursue line inquiry satisfactory resolution confront discrepancies inconsistencies story. Without loss honesty informant accuracy Information received.5 true environment, unlikely known independent assessing credibility. Consequently, ethical reluctant publish story through evaluate veracity reliability source. Those print inaccurate, incomplete, sometimes jaundiced items. led precludes grievances. alternative avenues communication whether singly aggregation, insufficient compensate reasons stated above, decidedly inferior means obtaining reliable prevalence functional illiteracy poses difficulty; simply incapable communicating effectively writing. Random conversations during substitute restricted duration permissible matter. equally qualified speak subject. If investigating incident, converse present little consequence. associated guided presence factor distortion obtained.6 kinds obtained evidence, environment. endorsed conclusion, nothing court's 'are supported body evidence record, indeed uncontradicted.' 82, 1001. Government seriously conclusion. Instead, contends communications raises claim dimensions. now turn. Respondents assert gather news. language newsworthy events. However characterized, gist argument guarantee rendered ineffective excessive restraints therefore restrictions absent justification so. words, contend protects antecedent becomes rejects ground 'newsmen said protections reach opportunities ordinary citizen discriminate media, susceptible attack. view, despite factual showing From appears opinion, think governmental restriction information, how severe, majority long single out disabilities applicable large. agree, organization reporters individuals rights superior enjoyed citizens. guarantees broadly secure citizen; create individuals. me, least, persons acquire thereby immunity regulation. To extent agree majority. But cannot follow nondiscriminatory, falls outside purview concern principally precedents. Zemel Rusk, 381 1, 85 1271, 14 179 (1965), rejected States citizen's had Cuba inform himself assertion refuse reveal confidential them grand juries. claim, primarily largely speculative future crime undisclosed, unverified sources' override competing pursuing prosecuting crimes reported pess informants deterring commission future.' 695, 2664. Relying precedents, apparently concludes nondiscriminatory irrelevant. Neither warrants broad reading. asserted trips country 'an inhibition action' rather restraint speech. 1281. context intended all-embracing test determining regulations implicate freedoms not. O'Brien, 391 367, 88 1673, 20 672 (1968), suggestion. dichotomy speech action, while helpful analysis, too uncertain serve dispositive charting outer boundaries concerns. instant forbids conduct, least generally, or, alternatively, prohibits direct exchange constitutes representative. willingness allow lawyers, clergymen, relatives, privately latter characterization seems closer mark, scope meaning hinge semantic distinctions. reality situation same, certainly magic choosing other. Simply stated, formed here. Nor supra, compel majority's true, grounded which, read isolation, view. E.g., 684—685, 2658. Taken entirety, endorse sweeping rejection challenges did wholly restrict information. contrary, recognized explicitly extend activities meaningful: 'Nor suggested gathering qualify protection; seeking news, eviscerated.' 681, 2656. later reiterated noting 'news ..' 707, 2670. And emphasized concurring opinion: 'The subpoenaed testify jury, respect safeguarding sources.' 709, 2671. addition explicit statements, fair reading makes plain hinged assessment societal interests determination implicated. especially 700—701, 2666. sum, barrier indepencent consideration ban. precedents arose contexts removed controls us, reflect sensible disinclination right-to-access dry logic extend. observed Zemel: '(T)here few action clothed ingenious garb decreased data flow.' 16—17, goes suggest must stringent standards review affect tangential availability media. mind impermissible conclude scrutiny. sources, though solely press, undermine function necessary require terms compelling discretionary convenience. worth repeating our admonition 'without here gives rise categorical Its consequence preclude accruate These privileged confidential. preventing learn Quite administration effectiveness rehabilitative confinement maintain, experiences therein matters concern.7 force disclosure invade decisionmaking processes officials. seek wish interviewed. They exceptionaless method believe substantially impairs core value Some years ago, Professor Chafee pointed interests: 'There interest, need men express opinions vital life living, social attainment truth, adopt wisest course carry way.' Z. Chafee, Free Speech (1954). usual application—as bar publication—the values expression self-fulfillment. here, penalty sanction publication, individualistic implicated What stake preserving affairs. No aspect rightly treasured ability people open debate resolve destiny. point, '(t)he bulwarks national commitment intelligent self-government.' Brief Petitioners 47—48. embodies Nation's popular self-determination abiding faith surest developing lies views issues.8 unfettered; informed. reason repeatedly encompass receipt ideas expression. Mandel, 753, 762, 2576, 2581, 683 (1972); Red Lion Broadcasting Co. FCC, 395 390, 89 1794, 1806, 23 371 (1969); Lamont Postmaster General, 301, 1493, 398 (1965); Martin City Struthers, 319 141, 143, 63 862, 863, L.Ed. 1313 (1943). reasoning underlies recognition obtain needed discharge political responsibilities. most citizens propect familiarity events hopelessly unrealistic. acts agent receive flow self-government. enabling meaningful control over process, performs effecting reference text Court: play role Thus serves designed powerful antidote abuses power chosen keeping elected serve.' Mills Alabama, 384 214, 219, 86 1434, 1437, 16 484 good reasons, unrestrained permitted. depend negates Government. underlying representative public's instrumentality effects right. impinges freedoms, met heavy burden Tinker Des Moines School District, 393 503, 733, 21 731 (1969), noted 'applied environment.' 506, 736 Earlier Term occasion applicability Martinez, 416 396, 1800, 40 224 (1974), authorizing censorship correspondence. declined analyze 'prisoners' rights,' concluded prisoner mail, outgoing, nonprisoner correspondent: 'Whatever status prisoner's uncensored outsider, latter's speech.' 408, 1809. looked guidance 'not cases involving questions dealing incidental liberties furtherance 409, Adopting followed Tinker, supra; Healy James, 169, 2338, 266 enunciated limit nonprisoners: 'First, practice unrelated suppression Second, greater involved.' 413, 1811. announced after final affirmance Happily, courts anticipated decided substance identical formulation assure impairment 'no (penal) systems.' 999.9 reviewed detail various reached conclusion: '(W)hile voiced merit protection, not, total, impose. When regulating area careful responding powers protect; take care cast manner unnecessarily sacrifices rights. excessive; protected basis.' 86, 1005. conclusion principal 'big wheel' phenomenon. phrase refers leaders. argues wheels' increase enhance persuade disruptive behavior. threatened, impaired, rehabilitation problematical ever creation enhancement prestige dispute With expertise administrators, phenomenon real impressionistic, advanced faith.' 774. found, theory rationale proclivities leadership potential. reveals estimates trublemakers ranging five ten percent. Logically, category should constitute smaller percentage. includes influntial cooperate maintaining order, all. Publicity enhances hindrance administration. shown unable identify precautions prevent adverse attention short, remedy broader avoid concededly phenomenon.11 successful systems allowing connection litigation, attempted ascertain administrators State numerous local jurisdictions. into adopted form. Of 24 American jurisdictions sample, representatives.12 Seven vest authrity case-by-case basis,13 11 interviews.14 authorities represented freely them. success open-interview policy15 suppose faces difficulties severe survey practices reinforces tc stake. Finding necessity ban, proceeded evaluated warrant order:16 '(W)e 87—88, 1006—1007. objects requirement evaluation requests. difficulties. good-faith denial self-interested unfavorable publicity prove perilously thin. Not unnaturally, cooperative critics management. Denials administrator's honest perception bias discrimination. Additionally, requiring widespread debilitating Unable rely correct denial, forced ad hoc defense merits reviewing courts. individualized correctionally unsound administratively burdensome. seem overly pessimistic, merit. event, authorities. judgment, bound commands otherwise. While requires abandon compels adoption request follows II, grievances subjects. Government, measure acccess Governmental palpable impact ultimate process scrutiny Common sense proper affairs state Legislative Executive Branches deter Judiciary chasing right-of-access rainbows advocate's eye spot actions. policed name 'right know' accommodates survive review. balance struck uninhibited license will. obligation protect rules drawn purposes undertaking request. Certainly reasonable time, place, Such already govern friends. wheels,' specified period. minimize consequences temporary solitary confinement. And, empowered suspend periods emergency. enable safeguard incurring risks similar allay another concerns—the difficulty correctly points press' vague concept. asserts intention convey others plausibly perform accredited reporters. understandably assume responsibility deciding basis. Yet grants defines follows: 'A second class mailing privileges; magazine periodical distribution; international service; radio television network station.' 4a. inclusive adequate Allowing madia, defined, afford desire fall definition difficulty17 comments exhaustive dictate indicate contours Bureau. affirm invalidates remand instructions devise new accordance needs guidelines virtue simplicity. publication impose disability, delineates unambiguous clarity. obviates thicket attractive appear, join look behind bright-line generalities, however abstract, realities preserve amid complexities changing society, less. Letter Apr. Clerk, Supreme presently file Clerk. Seattle-Tacoma Newspaper Guild Parker, 480 1062, 1066—1067 (1973). Hillery 364 196, 199—200 (N.D.Cal.1973). represents '(m)embers see there.' Presumably, disputed representation. 4b(5) (7). n. supra. activities. 4b(1) (2). Throught use media' 'press' refer broadcast journalism. equipment instances, wardens Apparently, occurrences widespread, unclear. implication authorize approves practice. Writing Judge McGowan attributed develop enlightening 'great judiciary entertains continuous history distinguished enlightened 77, 464 996. sentiment share, constructive leader reform. three experienced academic journalists, area. Ben Bagdikian, covering interviewing inmates; Timothy Leland, Pulitzer prize winner Assistant Managing Editor Boston Globe head investigative team; John W. Machacek, Rochester Times-Union, won coverage Attica Prison riot. Elie Abel, Dean Graduate Journalism University, Roy M. Fisher, University Missouri former editor Chicago Daily News. sixth witness Arthur L. Liman, served New York Special Commission Attica. capacity investigation 1,600 75 personally. Both Abel Fisher indispensable development techniques occupies central curricula journalism schools. recounting Attica, Liman gave testimony: 'We tended give rhetoric, facts; solidarity, making speeches confiding knew 'I add conducting face sanctions rewards just sees you private, tell things favorable. saw group, tendency say favorable instead horrible were. something different seen alone.' App. 290—291. stressed description physical brutality toward investigation, played up grievance talked privately, incidence confrontation officers limited, incidents, feel form psychic repression, depriving manhood. Therefore, lot myth beatings dispelled.' 292. chronicle indifference neglect. Chief Justice, provided subject, soken frequently ignorance apathy characterizes prisons: 'Yet, spite step-by-step details criminal adversary continue, termination brush rug guilty sentence. immature way, want remove consciousness. 'It melancholy truth taken tragic outbreaks past focus problem.' Burger, Our Options Are Limited, 18 Vill.L.Rev. 165, 167 Whom Bell Tolls, reprinted 25 Record N.Y.C.B.A. (Supp.) 14, 18, 23—24 (1970). Meiklejohn identified paramount value: 'Just as, decide acquaintance doubt disbelief criticism relevant issue, ill-considered, ill-balanced planning good. mutilation thinking directed. principle springs necessities program Meiklejohn, 26 (1948) (emphasis original). framed form: 'In limitations placed asserted?' 773. 867 exist10 negative environment Whether inter- 10 excerpt examination Hans Mattick, Criminal Center Research areas goods leadership: 'Q talents leaders? Well, native reasonably articulate, skills. wouldn't sufficient. 'He prison, clerk cellhouse assistant shop foreman person porter runner, looks low outsiders, mobility message sender carrier, work gibve essentially scarcity economy. 'So kitchens bakery scarce supplies distribute illegitimately kind, leadership. Does him prison? deal circumstances; instance, itself can't bestow 'For Sirhan Sirhan, Richard Speck notorious doesn't qualities Or someone Al Capone, became object revenge attacks wanted settle old scores, felt couldn't implement enough retaliate 'On hand, persons, confidence spectacular burglars armed robbers big scores reputation precedes combined, certain skill articulateness, community, illegitimate world world, call leadership.' 580—581. evalution arguments IV. California, Connecticut, Kentucky, Virginia, Wisconsin. 13 Alaska, Georgia, Montana, Jersey, Oregon, South Carolina. Illinois, Maine, Maryland, Massachusetts, Nebraska, North Carolina, Ohio, Vermont, Iowa, City, Columbia. jurisdiction, Mexico, unique defies categorization. 15 Massachussets, draft permitting exceptions precisely probability actual are, immediately caused concerned inmate's requested.' 779, 784. objective argued exercise discretion undercut perceived threats order. Apparently concerns, deleted references 'likelihood' 'probability' recast quoted text. thrust remains, grant flooded If, excessive, scheme allocating representatives. assumed throughout priority control, mean foreclose possibilities. fairly common pools participate, proxy, event limited. favoritism exclusivity ensure dependable

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