Document: 544 U.S. 709 CUTTER ET AL.v.WILKINSON, DIRECTOR, OHIO DEPARTMENT OF REHABILITATION AND CORRECTION, et al. No. 03-9877. Supreme Court of United States. Argued March 21, 2005. Decided May 31, Section 3 the Religious Land Use and Institutionalized Persons Act 2000 (RLUIPA or Act), 42 U. S. C. § 2000cc-1(a)(1)-(2), provides in part: "No government shall impose a substantial burden on religious exercise person residing confined to an institution," unless furthers "a compelling governmental interest," does so by "the least restrictive means." Petitioners, current former inmates Ohio state institutions, allege, inter alia, that respondent prison officials violated failing accommodate petitioners' their "nonmainstream" religions variety ways. Respondents moved dismiss claim, arguing, among other things, 3, its face, improperly advances religion violation First Amendment's Establishment Clause. Rejecting argument, District stated RLUIPA permits safety security—undisputedly interests—to outweigh inmate's claim accommodation. On thin record before it, court could not find enforcement RLUIPA, inevitably, would compromise security. Reversing interlocutory appeal, Sixth Circuit held impermissibly giving greater protection rights than constitutionally protected rights, suggested affording prisoners superior might encourage become religious. Held: qualifies as permissible accommodation is barred Pp. 719-726. (a) Foremost, compatible with Clause because it alleviates exceptional government-created burdens private exercise. See, e. g., Board Ed. Kiryas Joel Village School Dist. v. Grumet, 512 687, 705. Furthermore, face founder shoals Court's prior decisions have identified: Properly applying courts must take adequate account requested may nonbeneficiaries, see Estate Thornton Caldor, Inc., 472 703; they be satisfied Act's prescriptions are will administered neutrally different faiths, Joel, 687. "[T]he `exercise religion' often involves only belief profession but performance ... physical acts [such as] assembling others for worship service [or] participating sacramental use bread wine...." Employment Div., Dept. Human Resources Ore. Smith, 494 872, 877. covers state-run institutions— mental hospitals, prisons, like—in which exerts degree control unparalleled civilian society severely disabling 2000cc-1(a); 1997. thus protects institutionalized persons who unable freely attend needs therefore dependent government's permission religion. But elevate observances over institution's need maintain order safety. An measured override significant interests. See S., at 709-710. There no reason believe applied appropriately balanced way, particular sensitivity security concerns. While adopts "compelling interest" standard, 2000cc-1(a), "[c]ontext matters" application Grutter Bollinger, 539 306, 327. Lawmakers supporting were mindful urgency discipline, order, safety, penal institutions anticipated apply standard due deference administrators' experience expertise. Finally, differentiate bona fide faiths. It confers privileged status any sect. Cf. 706. 719-724. (b) The misread this precedents require invalidation advancing rights. Corporation Presiding Bishop Church Jesus Christ Latter-day Saints Amos, 483 327, counsels otherwise. There, upholding against challenge provision exempting organizations from prohibition religion-based employment discrimination Title VII Civil Rights 1964, accommodations "come packaged benefits secular entities." Id., 338. Were Appeals' view correct, all manner fall. For example, not, now does, traditionally recognized providing chaplains allowing services. In emphasizes respondents raised facial contended produce unconstitutional results specific case. anticipate abusive prisoner litigation overburden local institutions. However, should inmate requests excessive, unjustified persons, jeopardize effective functioning, facility free resist imposition. event, adjudication as-applied challenges order. 724-726. 349 F. 3d 257, reversed remanded. GINSBURG, J., delivered opinion unanimous Court. THOMAS, filed concurring opinion, post, p. 726. 1 CERTIORARI TO THE UNITED STATES COURT APPEALS FOR SIXTH CIRCUIT. 2 David Goldberger argued cause petitioners. With him briefs Marc D. Stern Benson A. Wolman. Acting Solicitor General Clement States under Rule 12.6 support Assistant Attorney Keisler, Patricia Millett, Mark B. Stern, Michael Raab. 4 Douglas R. Cole, State Ohio, respondents. brief Jim Petro, General, Stephen P. Carney, Senior Deputy Solicitor, Todd Marti Franklin E. Crawford, Solicitors.* 5 JUSTICE GINSBURG 6 114 Stat. 804, Plaintiffs below, petitioners here, operated Department Rehabilitation Correction assert adherents religions: Satanist, Wicca, Asatru religions, Christian.1 They complain (respondents here), failed "in ways, including retaliating discriminating them exercising nontraditional denying access literature, same opportunities group granted mainstream forbidding adhere dress appearance mandates withholding ceremonial items substantially identical those permitted, provide chaplain trained faith." Brief 5. 7 purposes stage, stipulated members sincere beliefs. Gerhardt Lazaroff, 221 Supp. 2d 827, 833 (SD 2002). 8 response complaints, mounted institutionalized-persons RLUIPA; contend, denied respondents' motion Appeals determination. appeals held, urged, portion applicable 2000cc-1, violates We reverse judgment. 9 "This has long . practices without violating Clause." Hobbie Unemployment Comm'n Fla., 480 136, 144-145 (1987). Just last Term, Locke Davey, 540 712 (2004), reaffirmed "there room play joints between" Free Exercise Clauses, beyond requirements, offense 718 (quoting Walz Tax City New York, 397 664, 669 (1970)). "At some point, devolve into `an unlawful fostering religion.'" 334-335 (1987) Hobbie, 145). we hold, exceed limits practices. 10 * A 11 latest long-running congressional efforts accord heightened government-imposed burdens, consistent precedents. Ten years RLUIPA's enactment, 878-882 (1990), inhibit otherwise valid laws general incidentally conduct. particular, ruled did bar Oregon enforcing blanket ban peyote possession allowance drug. Accordingly, deny unemployment dismissed jobs religiously inspired use. 874, 890. recognized, however, political branches shield through legislative accommodation, making exception proscriptive drug 12 Responding Congress enacted Freedom Restoration 1993 (RFRA), 107 1488, U.S.C. 2000bb seq. RFRA "prohibits `[g]overnment' `substantially burden[ing]' person's even if rule applicability can demonstrate `(1) furtherance interest; (2) means furthering interest.'" Boerne Flores, 521 507, 515-516 (1997) (brackets original) 2000bb-1). "[U]niversal" coverage, "applie[d] Federal law," id., 516 2000bb-3(a)), notably lacked Commerce underpinning Spending limitation recipients federal funds. Boerne, invalidated subdivisions, holding exceeded Congress' remedial powers Fourteenth Amendment. 532-536.2 13 again responded, time enacting RLUIPA. Less sweeping RFRA, invoking authority targets two areas: concerns land-use regulation, 2000cc;3 relates 2000cc-1. issue "[n]o [state local] shows 2000cc-1(a)(1)-(2). defines "religious exercise" include "any religion, whether compelled by, central to, system belief." 2000cc-5(7)(A). applies when [on exercise] imposed program activity receives financial assistance,"4 affects, removal affect, commerce foreign nations, several States, Indian tribes." 2000cc-1(b)(1)-(2). "A [RLUIPA] defense judicial proceeding obtain appropriate relief government." 2000cc-2(a). 14 Before documented, hearings spanning three years, "frivolous arbitrary" barriers impeded persons' 146 Cong. Rec. S7774, S7775 (July 27, 2000) (joint statement Sen. Hatch Kennedy RLUIPA) (hereinafter Joint Statement) ("Whether indifference, ignorance, bigotry, lack resources, restrict liberty egregious unnecessary ways.").5 To secure redress encountered undue observances, carried interest"/"least means" standard. S7774. anticipated, entertaining complaints "due expertise jail administrators." Rep. 103-111, (1993)). B 15 Petitioners initially suit asserting claims Amendments. After amended 3. statutory claims, 2d, 846. Pursuant 28 2403(a), intervened defend constitutionality. 261 (CA6 2003). 16 Adopting report recommendation Magistrate Judge, rejected argument conflicts 846-848. As impact prison's staff population, "permits security—which undisputedly accommodation." 848. declined find, had Ibid. 17 appeal pursuant 1292(b), reversed. Citing Lemon Kurtzman, 403 602 (1971),6 "impermissibly advanc[es] rights." 3d, 264. Affording nonreligious prisoners," suggested, "encourag[e] enjoy 266. 18 certiorari resolve conflict Courts question provision, Act, 543 924 (2004).7 Compare 257 Madison Riter, 355 310, 313 (CA4 2003) (§ violate Clause); Charles Verhagen, 348 601, 610-611 (CA7 (same); Mayweathers Newland, 314 1062, 1068-1069 (CA9 2002) (same). judgment Circuit. II 19 Religion Clauses Amendment provide: "Congress make law respecting establishment prohibiting thereof." first commonly called Clause, commands separation church state. second, requires respect for, noninterference with, beliefs our Nation's people. express complementary values, exert conflicting pressures. Locke, ("These frequently tension."); Walz, 668-669 ("The struggled neutral course between both cast absolute terms, either which, expanded logical extreme, tend clash other."). 20 Our recognize joints" 669, space action neither nor prohibited 890 ("[A] believes negative accorded expected solicitous value legislation. ."); 329-330 (Federal Government exempt nonprofit activities VII's employment); Sherbert Verner, 374 398, 422 (1963) (Harlan, dissenting) constitutional obligation `neutrality' narrow channel slightest deviation absolutely straight leads condemnation." (citation omitted)). majority question, supra, page, hold fits within corridor Clauses: 21 705 (1994) (government "be oblivious impositions legitimate exercises power place practice"); (O'CONNOR, judgment) (removal more likely perceived "as rather endorsement religion"). 703 (1985); 687.8 22 wine. ." institutions—mental 1997; Statement ("Institutional residents' right practice faith mercy running institution.").9 religion.10 23 note regard Government's military. 3073 (referring Army chaplains); Katcoff Marsh, 755 223, 225-229 (CA2 1985) (describing chaplaincy program). Goldman Weinberger, 475 503 (1986), Air Force Orthodox Jewish officer uniform regulations he wear yarmulke indoors. military community, observed, simply [individual] autonomy there larger community." 507 original; internal quotation marks omitted). responded prescribing member armed forces item apparel while wearing uniform," interfere [of] duties neat conservative." §§ 774(a)-(b). 24 do read indicate struck down Connecticut "arm[ed] Sabbath observers unqualified work whatever day designate[d] Sabbath." 709. invalid "unyielding[ly] weigh[ted]" interests Sabbatarians "over interests." 710. 25 715, 327 (2003).11 139 26190 (1993) (remarks Hatch). administrators establishing necessary procedures good consideration costs limited resources." 10).12 26 carved out separate school district serve exclusively community highly Jews, Satmar Hasidim. 690, part "single[d] sect special treatment," 706 (footnote presents such defect. sect, singles disadvantageous treatment. 27 decision Amos upheld basis religion." 329. reasoning exemption entities benefit," 338, "declared statute activity," 333. accommodations, 338; Madison, 318 ("There requirement protections fundamental march lockstep."). correct reading decisions, Congressional fail, 774, itself makes. "traditionally recognized" 832: "but publicists consultants," allows "prisoners assemble worship, rallies," Reply 29 emphasize "have [the Act's] constitutionality, facts [petitioners'] cases [that] results." 831. Court, noting underdeveloped record, concluded: finding "that factually impossible kind significantly compromising levels provided inmates" cannot made juncture. 848 (emphasis added).13 agree. 30 "For decade, Bureau Prisons managed largest correctional Nation scrutiny security, public prisoners." was aware Bureau's experience. S7776 (letter Justice Hatch) ("[W]e unreasonable operations. been effect six compliance system."). operations mandated Prison Litigation Reform 1995, note, designed frivolous filings.14 31 Should functioning institution, 32 33 reasons stated, reversed, case remanded further proceedings opinion. 34 ordered. Notes: Briefs ofamici curiae urging reversal York Eliot Spitzer, Caitlin J. Halligan, Daniel Smirlock, Jean Lin Benjamin N. Gutman, Solicitors Christine O. Gregoire, Washington; American Correctional Chaplains Association Gene Schaerr; Americans Separation M. Gossett, Fathi, Ayesha Khan, Richard Katskee, Alex Luchenitser, Steven Shapiro; National Evangelicals Laycock Nathan Diament; Orrin G. Martin Lederman. amici affirmance Common-wealth Virginia Judith Williams Jagdmann, Virginia, William Thro, Maureen Riley Matsen, Matthew Cobb, Carla Collins, Eric Gregory, Hoppe, Courtney Malveaux, Valerie L. Myers, Cameron O'Brion, Ronald Regnery, Mathias Roussy, Jr., Sievers, Associate Alva Swan, Virgin Islands, Attorneys respective follows: Gregg Renkes Alaska, Lawrence Wasden Idaho, Thomas Miller Iowa, Jon Bruning Nebraska, Wayne Stenehjem North Dakota, W. Drew Edmondson Oklahoma, Darrell V. McGraw, West Virginia; Jail Beekhuizen H. Carpenter; Claremont Institute Center Constitutional Jurisprudence John Eastman Edwin Meese III. Coalition Anthony Picarello, K. Hollyn Hollman; International Municipal Lawyers Marci Hamilton; Rutherford James Knicely Whitehead. Cutter longer custody Correction. 2, n. 1. No party moot, it: Without doubt, live controversy remains still-incarcerated petitioners, reach continue present actual controversy. SeeSteffel Thompson, 415 452, 459-460, (1974). operative territories possessions. SeeO'Bryan Prisons, 399, 400-401 2003); Guam Guerrero, 290 1210, 1220-1222 2002); Kikumura Hurley, 242 950, 958-960 (CA10 2001); re Young, 141 854, 858-863 (CA8 1998). This occasion matter. here. validity Every State, accepts funding prisons. 28, (citing FY 2003 Office Programs & Community Oriented Policing Services Grants State) revealed, typical "[a] refused Moslems Hallal food, though Kosher food." Hearing Protecting AfterBoerne Flores Subcommittee Constitution House Committee Judiciary, 105th Cong., Sess., pt. 11, (1998) Freedom) (prepared Legal Director, Congress). Across country, complained sack lunches, enable break fasts after nightfall. 39 (statement Isaac Jaroslawicz, Director Affairs Aleph Institute). "Michigan Corrections prohibit[ed] lighting Chanukah candles prisons" "smoking" "votive candles" permitted. 41 priest responsible communications Roman Catholic dioceses corrections facilities Oklahoma "was [a] nearly yearly battle Sacramental Wine celebration Mass," prisoners' possessions, "such Bible, Koran, Talmud needed Native Americans[,] treated contempt confiscated, damaged discarded" officials. 58-59 Donald Brooks, Reverend, Diocese Tulsa, Oklahoma). three-part test: "First, purpose; principal primary one inhibits religion; finally, foster excessive entanglement 612-613 (citations grounds. below exceeds Tenth Clause,Gerhardt 839-849 2002), Amendment, 850-851, 838-839. Circuit, having determined arguments. 259-260, 269 (2003). renew arguments also augment federalism-based residual-powers contentions that, States' choices subject oversight. 9, 25-33; cf. 322 Because these defensive pleas addressed Appeals, review, view, consider Hoffmann-La Roche Ltd Empagran A., 542 155, 175 (2004); Oakland Cannabis Buyers' Cooperative, 532 483, (2001). 727, (THOMAS, concurring). Directed obstructions institutional arrangements pay devotional accessories. See,e. 605 (overturning Islamic prayer oil leaving inmate-plaintiff responsibility purchasing oil). ibid. (prison's regulation Muslim possessing ritual cleansing oil); Young Lane, 922 370, 375-376 1991) restricted yarmulkes); Hunafa Murphy, 907 46, 47-48 1990) (noting instances served pork, substitute available). argue, line goes reduction impediments project, encouraging "get religion," thereby gain afforded 15-17; 266 ("One induce adopt feign receive statute's benefits."). observance, opportunity services, attract joiners seeking closely guarded day, doubt "benefits." revealed kosher diet fruit, vegetable, granola bar, liquid nutritional supplement—each every meal." Freedom, 38 Jaroslawicz) founders fact already facilitates services chaplains, possess items, assembly worship. App. 199 (affidavit Schwarz, Administrator South Region (Oct. 19, 2000)) (job "facilitating delivery various throughout Ohio"); Correction, Table Organization (Apr. 2005), available http://www.drc.state.oh.us/web/DRCORG1.pdf (as visited 2005, Clerk file) (department includes "Religious Services" division); 20, (citing, Gawloski Dallman, 803 103, 113 1992) (inmate protective allowed congregational service, Bible materials, visits); Taylor Perini, 413 189, 238 (ND 1976) (institutional area)). posited irreligious Aryan officials' confiscation his white supremacist literature association expression evaluated deferential rational-relationship described inTurner Safley, 482 78 Christian challenging similar withholding, assumed, stronger prospect success review compelling-interest 240 566, 576 (WD Va. 2003)). Courts, countervailing interest facilitating inflammatory racist imperil Reimann 897 402-403 (ED Wis. 1995) (concluding, excluding advocating violence preventing violence); George Sullivan, 896 895, 898 about sue exhausting administrative remedies. 2000cc-2(e) (nothing "shall construed amend repeal 1995"); 1997e(a) (requiring exhaustion remedies) argue gangs cloak illicit violent instant considered dismiss. Thus, parties' assertions matter us. bears repetition, interest, area. Seesupra, 722-723. Further, prisoner's religiosity, asserted authentic. Although bars inquiry "central" 2000cc-5(7)(A), preclude sincerity professed religiosity. Gillette 401 437, 457 (1971) ("`[T]he "truth" open question'; rather, objector's `truly held.'" Seeger, 380 163, 185 (1965))). 723, 12. 35 concurring. 36 I join agree (RLUIPA) modern law.1 write explain why proper historical understanding federalism conclusion.2 37 Amdt. explained, important function "ma[ke] clear establishments." Elk Grove Unified Newdow, 1, 50 (2004) (opinion judgment). then, "is best understood provision" "protects establishments interference." Ibid.; Zelman Simmons-Harris, 536 639, 677-680 (2002) concurring); Lee Weisman, 505 577, 641 (1992) (SCALIA, dissenting). contends prevents oversight "`play joints'" Clauses. 712, 718-719 (2004). words, asserts interference regarding policy. Ohio's intrudes policy hence vision range overreads contend "States establish preferred churches" incorporated Amendment,3 ever contravene policy." added); Commonwealth Amici Curiae 6-13. That what says. prohibits legislation "respecting religion" prohibit "taking cognizance Hamburger, 106-107 (2002). At founding, involved "`coercion orthodoxy force threat penalty,'" 52 Lee, 640-641 dissenting), turn citing Levy, (1986)), "`governmental preferences faiths,'" 53 Rosenberger Rector Visitors Univ. Va., 515 819, 856 (1995) concurring)). founding involved, mandatory observance payment taxes ministers. judgment); dissenting); McConnell 2131; Clause: (2d ed. 1994). proscribe therefore, forbid coercive establishments, legislating generally. History, presented show hermetically seals field points words Ratifying Convention: "There shadow intermeddle Its most flagrant usurpation." Defense (June 12, 1788), reprinted Papers 130 (R. Rutland, Hobson, Rachal, Sisson eds. 1977). relies Iredell's discussing Test Carolina 40 "[Congress] certainly [has] whatsoever Is given matters religion? Can pass single act impair liberties? If could, just alarm future concerning authorized pass, Constitution, people obey." Debate Convention 30, Founders' 90 (P. Kurland Lerner 1987). These quotations Framers' scope Instead, Framers believed legislate enumerated gave authority. challenges, well merit. supra. shown codified Madison's unenacted version proposed Representatives, demonstrates opposite. touching infringing conscience." Annals 731 (1789); Wallace Jaffree, 38, 96-97 (1985) (REHNQUIST, ultimately adopted, "identified position [Madison] once sought distinguish own," 106. Whatever thought "he clearly mind language less severe [previously] used." finally adopted narrower claims. 43 Nor evidence relies—Joseph Story's Commentaries Constitution—prove theory. Leaving aside problems relying source indicator original understanding, Term Limits, Inc. Thornton, 514 779, unpersuasive own right. Story say whole left governments, acted upon according sense justice, constitutions." 702-703 (1833) (reprinted context, concerned inability establishment. 701 real object amendment prevent national ecclesiastical establishment, give hierarchy exclusive patronage government"); 702 ("[I]t deemed advisable exclude subject. impossible, arise perpetual strife jealousy ascendancy, create establishment"). 44 short, precludes lacks provenance, based history am aware. Even bind powers, observe strict state, steer refrain religion"; presumably 45 face—the relevant inquiry, challenge—RLUIPA provides, relevant: applicability, imposition person," first, "further[s] interest." since established (or establish, Clause) religion: coerce clergy, prefer another. 46 addition, text passed "rule[s] applicability," ibid., concern governments obviously many nothing let alone thereof. Numerous applications fail. Booker, 220, (2005) dissenting part); Salerno, 481 739, 745 47 Congress, authority, conditioned receipt funds 2000cc-1(b)(1) ("This section assistance"). noted above, spending power. Nonetheless, condition stands, themselves voluntarily accepting voluntary acceptance undercuts encroaching turf. properly declines assess discredited test ofLemon (1971), 262-268 avoid "must purpose," "its (internal Under second prongs, RLUIPA—and, indeed, religion—might disestablishing Disestablishment easily purpose flunk prong, "strengthen revitalize" fail second. McConnell, Founding, Part I: Religion, Wm. Mary Rev. 2105, 2206-2207 (2003) McConnell). dismisses aspect observation address issueAnte, 718, 7. fairly included presented, asks "[w]hether [RLUIPA]." Pet. Cert. i. parties briefed 12-16, suggests remand useful facts, Good News Club Milford Central School, 533 98, 119, Also, entirely consonant Sabri 541 600, 613 (for State's "Necessary Proper" expenditure funds, "some obvious, simple, direct relation" funds); Lopez, 549, 587 concurring) uses word `commerce' suggest, proposition affect' interstate commerce"). issues, outside Appeals. benefit yet simultaneously adheres 25-26. positions incompatible. precisely shielded interferenceElk 50-51 53, 4, 54,

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