Document: 434 U.S. 159 98 S.Ct. 364 54 L.Ed.2d 376 UNITED STATES, Petitioner,v.NEW YORK TELEPHONE COMPANY. No. 76-835. Argued Oct. 3, 1977. Decided Dec. 7, Syllabus On the basis of an FBI affidavit stating that certain individuals were conducting illegal gambling enterprise at a specified New York City address and there was probable cause to believe two telephones with different numbers being used further activity, District Court authorized install use pen registers respect telephones, directed respondent telephone company furnish "all information, facilities technical assistance" necessary employ devices, which (without overhearing oral communications or indicating whether calls are completed) record dialed. The ordered compensate prevailing rates. Respondent, though providing refused lease lines needed for unobtrusive installation registers, thereafter filed motion in vacate portion register order directing assistance FBI, on ground such directive could be issued only connection wiretap meeting requirements Title III Omnibus Crime Control Safe Streets Act 1968. ruled adversely respondent, holding not governed by III; court had jurisdiction authorize devices upon showing cause; it authority direct assist both under court's inherent powers All Writs Act, gives federal courts issue writs appropriate aid their respective jurisdictions agreeable usages principles law." Though agreeing Court's rationale, concluding district have power either inherently as logical derivative Fed.Rule Crim.Proc. 41, surveillance probable-cause showing, Appeals, affirming part reversing held abused its discretion ordering installing operating expressed concern requirement establish undesirable precedent impress unwilling private third parties. Held : 1. III, is concerned orders "authorizing approving interception wire communication" does govern authorization do "intercept" because they acquire "contents" those terms defined statute. Moreover legislative history shows definition designed exclude registers. Pp. 165-168. 2. 41 Rule sufficiently flexible include within scope electronic intrusions finding cause. 168-170. 3. compelling provide clearly comported intent Congress. 171-178. (a) conferred extends, circumstances, persons who (though parties original action engaged wrongdoing) position frustrate implementation proper administration justice. Here highly regulated public utility duty serve public, so far removed party from underlying controversy permissibly compelled based respondent's illegally continuing basis. Moreover, concededly uses billing operations, detecting fraud, preventing law violations. And, Appeals recognized, provision leased line essential fulfillment purpose been issued. 171-175. (b) consistent 1970 amendment "[a]n authorizing communication shall, request applicant, common carrier . applicant forthwith all facilities, accomplish unobtrusively. ." 176-177. 2 Cir., 538 F.2d 956, reversed. Lawrence G. Wallace, Washington, D. C., petitioner. George E. Ashley, City, respondent. Mr. Justice WHITE delivered opinion Court. 1 This case presents question United States may properly enforcement officials registers1 investigate offenses committed means telephone. * March 19, 1976, Southern agents Federal Bureau Investigation (FBI) Telephone Co. (Company) Company rates any furnished. App. 6-7. submitted agent stated 220 East 14th Street that, facts set forth therein, bearing furtherance activity. Id., 1-5. found conclude using interstate commerce conducted violation 18 U.S.C. §§ 371 1952, been, currently being, would continue offenses. Its operate until knowledge dialed led identity associates confederates believed operation 20 days, "whichever earlier." 3 declined comply fully order. It did inform location relevant "appearances," is, places where specific emerge sealed cable. In addition, agreed identify "pairs," pairs wires constituted circuits lines. information required register. Company, however, fashion. Such inconspicuous locations away building containing telephones. A "leased line" unused makes "appearance" same terminal box desired If connected subject line, can then installed remote monitored point. instead lines, conceded do, advised string cables "subject apartment" another installed. determined after canvassing neighborhood apartment four days no own attach without alerting suspects,2 event, course, cease function. 15-22. 4 30, moved conforming 1968, 2510-2520 (1970 ed. Supp. V). contended neither nor 28 § 1651(a) provided 10-14. proscriptions intercept communications. concluded 5 April 9, denied Company's stay pending appeal, lines.3 6 affirmed reversed part, one judge dissenting below should entirety. Application re Pen Register Order, 956 (CA2 1976). theDistrict fall otherwise prohibited also power, adequate majority held, assumed, arguendo, "a has discretionary compel Company," but "in absence limited Congressional action, abuse assistance." F.2d, 961.4 "such most undesirable, if dangerous unwise, parties" "there assurance will always able protect [third parties] excessive overzealous Government activity compulsion." 962-963.5 7 We granted States' petition certiorari challenging Appeals' invalidation against respondent.6 429 1072, 97 807, 50 789. II 8 first reject contention, renewed here, lacked conformity procedures III7 securing judicial communications.8 Both language statute beyond doubt III.9 9 2518(1) (emphasis added).10 Congress mean "the aural acquisition contents through electronic, mechanical, other device." 2510(4) added). communications, term 2510(8).11 Indeed, official even determine existed. These hear sound. They disclose dialed—a establishing communication. Neither purport between caller recipient call, identities, call completed disclosed Furthermore, "aural acquisition" anything. decode outgoing responding changes electrical voltage caused turning dial (or pressing buttons pushbutton telephones) present form interpreted sight rather than hearing.12 10 confirms congressional III. Senate Report explained registers: 11 "Paragraph [of 2510] defines 'intercept' device. Other forms proposed legislation. legislation prevent tracing phone calls. 'pen register,' example permissible. But see v. Dote, 176 (7th 1966). intended privacy itself communication." S.Rep.No.1097, 90th Cong., 2d Sess., 90 (1968).13 12 clear view posing threat dimension intend impose restrictions use. 13 agree registers.14 undisputed this predicated cause, claim made way inconsistent Fourth Amendment. 41(b) authorizes issuance warrant to: 14 "search seize (1) property constitutes evidence commission criminal offense; (2) contraband, fruits crime, things criminally possessed; (3) committing offense." 15 broad enough encompass "search" ascertain suspected employed facilitating venture "seizure" produces. Although 41(h) "to documents, books, papers tangible objects," restrict exhaustively enumerate items seized pursuant 41.15 we recognized inKatz States, 389 347, 88 507, 19 576 (1967), conversations protected Amendment, U.S., 354-356, n. 16, S.Ct., 513.16 See Osborn 385 323, 329-331, 87 429, 433, 17 394 (1966). 16 Our conclusion circumstances supported 57(b), provides: "If procedure specifically prescribed rule, proceed lawful manner these rules applicable statute."17 need decide 57(b) orders, reinforces our seizures intangible impulses recorded well items. Finally, hold defying judgment "be permissible." supra, 90. anomalous permit recording while prohibiting lesser intrusion accomplished result. some 41. Cf. supra.18 IV ample assuming applicability discretion. Since existed requiring point fact particular discretion, interpret generally barring apparently sustaining render limitation regardless burden involved pose severe autonomy whatever reason prefer assistance. Consequently embark course authorization. duties limits; unreasonable burdens imposed. conclude, here Congress.19 "The Supreme established 1651(a). implement empowered repeatedly commands effectuate frustration previously exercise obtained: "This served since inclusion, substance, Judiciary 'legislatively approved source procedural instruments achieve rational ends ' " Harris Nelson, 286, 299, 89 1082, 1090, 22 281 (1969), quoting Price Johnston, 334 266, 282, 68 1049, 1058, 92 L.Ed. 1356 (1948). "[u]nless appropriately confined Congress, avail auxiliary aids performance duties, when historic calculated sound justice entrusted it." Adams ex rel. McCann, 317 269, 273, 63 236, 238, 268 (1942). 21 consistently applied flexibly principles. 262 Judicial Code, predecessor 1651, expressly courts, "appropriate" "necessary" writs, supplemental situations writ sense physically discharge appellate duties." 239. supplied commanding prisoner brought before arguing his appeal. Similarly, avoid frustrating "very purpose" 2255, 1651 furnished produced purposes hearing. Hayman, 342 205, 220-222 (1952). whether, despite statutory authority, discovery habeas corpus proceeding it. Eight Justices require effective. express so, Trade Commission for, issue, merger hearings impairing jurisdiction. FTC Dean Foods Co., 384 597, 86 1738, 802 who, wrongdoing, justice, Mississippi Valley Barge Line 273 F.Supp. 1, (E.D.Mo.1967), summarily aff'd, 579, 692, 779 (1968); Board Education York, 66 (CA10 1970), cert. denied, 401 954, 91 968, 237 (1971), encompasses taken affirmative hinder McHie, 196 F. 586 (N.D.Ill.1912); Field, 193 92, 95-96 (CA2), 894, 72 202, 96 670 (1951).20 23 Turning case, think compelled. facilitate For knowledge, refuse supply meager efforts put end threatened obstruction investigation lawfully used. hardly public,21 substantial interest Certainly offensive concedes regularly employs checking violations law.22 Nor burdensome. reimbursed rates, compliance minimal effort disruption operations. 24 note, conceivable successfully accomplished.23 exhaustive search, unable find tipping off targets investigation. purpose—to learn identities operation—for issued.24 25 more recent actions. As Part II, officials. Without presented simply cannot effectively employed. shall unobtrusively 2518(4). light command compel, request, interception, remarkable thought exercise, required, companies invasion privacy.25 convinced prohibit challenged indication permissible tool enabling thwart determination apprehend prosecute employing utility's conduct venture. contrary accordingly 26 So ordered. 27 STEWART, concurring part. I register, joins Parts I, opinion. However, STEVENS 29 STEVENS, whom BRENNAN MARSHALL join, 30 Today's decision appears radical departure prior holdings. builds previous intimations search one, strictly restrained authorization, applies analysis thinks jurisdiction, difficult accept. principle fundamental; never important purports secret individual's privacy. Yet entirely ignored 2, Government's application permission engage cooperate covert operation. 31 given carrying out surveillance. Those defects remedied patchwork interpretation regards grant inapplicable insofar limits authority. corrected reading gave judges wide-ranging ombudsman. motivated belief would, it, Company.1 warrants conclusively show areas, rush result must await deliberation. From beginning Nation's history, sought accretion arbitrary police courts; less unprecedented step minimally intrusive. 32 Beginning July 31, 1789, Stat. 29, 43, 82 197, 219, enacted series over 35 statutes granting another. characteristic common: grants inclusion limitations searched, objects warrant.2 random coincidence; reflection deeply imbedded revolutionary abuses attend delegation warrants. colonial period, oppressive British practice allowing "general warrants" "writs assistance"3 major catalysts struggle independence.4 After independence, state constitutions "no ought cases, formalities, laws."5 adoption Amendment contemporaneous, limiting warrants.6 33 unnecessary develop historical background great length, rough contours make abundantly roving Quite properly, therefore, today avoids error Courts "inherent power" line.7 power.8 34 While eschews notion equally odds 200-year country ignores plain meaning very relies. Under Rule, "property" seizure, merely illustrative. Ante, 169. treats general prohibited. 170. startling approach. face, open-ended Instead, follows steps dozens enactments preceded it: nature valid obtained. force demonstrated actions compose legislated comprehensively wiretapping Specifically, carefully circumstances. demonstrates (which join), encompassed What fails out, IX another, distinct extending That statute, formed 1972 additional class property, namely, "property offense laws States." 3103a. understand provision, remembered 1967, "mere evidence" constitutionally seizure. Gouled 255 298, 261, 65 647. Warden Hayden, 387 294, 1642, 782, constitutional objection mere-evidence seizures. considered because, category property—mere evidence—which seizure incident arrest, warrant. mere evidence.9 fill gap law.10 36 Two conclusions follow ineluctably enactment IX. First, perceived enact IX, law, stood evidence.11 37 Second, disproves theory suggestion forward Katz 576. briefed Katz, Court, dicta, indicated property. Whatever merits absolutely time. 1968 dealt searches expanding covered changed. Each item listed tangible,12 final reference "and items" surely now read describing outer included category.13 strains credulity suggest having circumscribed then, expand "intangibles" safeguards III.14 fact, contained absurd suppose draftsmen paragraphs relating warrant, 41(c), preparation inventory presence person whose taken, 41(d), return 41(e), almost meaningless kind. 38 To reach overlook Rule's language, safeguards, background. extraordinary sensitive area, regard unwise. intrusive evidently so. (1968). try leap assumption immaterial attachment If, hand, protected, intervention unauthorized. protection applicable, focus inquiry intrusion, drawn hypothesis, entered nullity. cannot, support 39 Even assume valid, accept 1651(a), installation. unsupported interpretations Act. 40 originally enacted, 81.15 was, Congress,16 provides tools—the various common-law writs—necessary them jurisdiction.17 contain, containing, today's uncover. itself, fundamental scope. jurisdiction;18 selected analogous writ. limitations. starts premise obtained." 172. stated, objectionable conforms Clearly, free ignore order, ability perform undermined. And carry settled. Root Woolworth, 150 401, 410-413, 136, 138, 1123. restraints. instance, relief "of kind" "on principle" accorded judgment. id., 411-412, 138-139.19 42 More significantly, takes ofits jurisdiction.20 better rights be, sufficient Sampson Murray, 415 61, 94 1028, 123; Commercial Security Bank Walker & Trust 456 1352 (C.A.10, 1972); J. Moore, B. Ward, Lucas, Moore's Practice ¶ 110.29 (1975). 43 Nowhere decisions lower slightest why According refusal "threatened .." 174. Concededly, citizen cooperation element government investigation, lack legitimate judicially sanctioned.21 unless coextensive successful inability obtained detracted Plainly, ride shoulders completion 44 confers longer enable functions, sweeping history. Of appointed King Revolution terminate. supra. seek writ, disregard "agreeable 45 particularly offensive. probably welcomes defeat normal profit kind future. Nevertheless, troubling portent future lurking arcane 46 affirm Appeals. mechanical device records monitoring released. overhear indicate actually completed. known countersurveillance techniques. 21. date extended days. 33. "without [the Company's] aid, worthless. help. requested requires expenditure time Company]; indeed, relatively simple, routine procedure." 961-962. Judge Mansfield dissented possessed favor He argued trusted cases necessity balance imposed necessity. 13, moot, "capable repetition, yet evading review." Pacific Terminal ICC, 219 498, 515, 279, 283, 55 310 (1911); Roe Wade, 410 113, 125, 93 705, 713, 147 (1973). brief periods. Here, expedited extended, expired six argument. stayed mootness problem remained, certainly become stale review plain, policy refusing voluntary utilize them, subjected similar Weinstein Bradford, 423 147, 149, 348, 350 party, consider matter. conform posed cross-petition, defend granted. Langnes Green, 282 531, 538-539, 51 243, 246, 75 520 (1931); Dandridge Williams, 397 471, 475 6, 1153, 1156, 491 (1970). Appeals: reversal questions here. Four reached Giordano, 416 505, 553-554, 1820, 1845, 341 (1974) (Powell, J., joined Brennan, C. Blackmun Rehnquist, JJ., part). derived suppressed turn interception. Every matter Illinois Bell Tel. 531 809 (CA7 1976); Southwestern 546 243 (CA8 Michigan 565 (CA6 1977); Falcone, 505 478 (CA3 1974), 420 955, 95 1338, 432 (1975); Hodge Mountain 555 254 (CA9 Clegg, 509 605, 610 (CA5 1975). sanctions aimed "willfully intercepts, endeavors intercept, procures endeavor 2511(1)(a). 'Contents' includes concerning [the] existence, purport, 957. 1966), 605 Communications 1934, 47 divulgence "any radio, ban. 803 223, amended restricting radio Thus 605. Korman 486 926, 931-932 1973). Dote indicative Congress' intention place merit oblique expression desire permitted ordinary business, allowed, long enforcement. Brief Respondent 16. sentences preceding unequivocally separate 2511(2)(a)(i), excludes business practices prohibitions disavow extent authorities. closely akin supra; Where inclusive, introduced phrase mean" include." Helvering Morgan's, Inc., 293 121, 125 60, 79 232 (1934). complied us. notice 41(d) inflexible invariably "searched" commencement search. 355-356, 513. us 41(c) duration exceed 20-day conflict Baird, 414 700, 710 1969), 396 1005, 559, 497 (1970); Jackson 122 U.S.App.D.C. 324, 326, 353 862, 864 (1965); Remolif, 227 420, (Nev.1964); Link Wabash R. 370 626, 633 8, 1386, 1390, 734 (1962) (applying Civ.Proc. 83). dissent argues, post, 182-184, 41(b), modified following 782 explicitly falls short "seize" evidence. elimination restriction seizing evidence," whatsoever as, acknowledges, remained unchanged. phrase, "[t]he 'property' rule added), indicates exhaustive. comprehend logic supporting dissent's 184-185, survive failed 41(h). There obviously construction Katz. assertion "strains credulity" intangibles outside disregards restrictions. conclusion, directly contradicted obtain much information. three Second Circuit. Sixth Circuit (1977), Seventh (1976), Eighth "concomitant surveillance." 246. Labette County Comm'rs Moulton, 112 217, 221, 108, 110, 698 (1884): "[I]t mandamus [now 1651] ancillary exercised enforced." 201(a) N.Y.Pub.Serv.Law (McKinney 1955 1977-1978). Tr. Oral Arg. 27-28, 40. attempt draw distinction 189-190, specious. normally legal (1948), example, production him appeal hear. adequately rights. nullification right surveillance, just prisoners. "it expect citizens involve themselves process." conviction foreign traditions, believes. Babington Yellow Taxi Corp., 250 N.Y. 14, 17, 164 N.E. 726, 727 (1928) (Cardozo, J.) ("Still, Edward citizenry called enforce state, faintly lagging steps, honestly bravely implements convenient hand"). Quarles Butler, 158 532, 535, 959, 960, 1080 (1895) ("It every citizen, prosecuting, punishment of, breach peace States"); Hamilton Regents, 245, 265 n., 343 (1934) concurring); Elrod Moss, 278 123, 129 (CA4 1921). concept least predicate contemplates subpoenas duces tecum nonparty witnesses noncomplying, contempt. Roviaro 53, 59, 77 623, 627, 639 (1957) ("The [informer's] privilege recognizes obligation communicate crimes law-enforcement and, preserving anonymity, encourages obligation"). what legally enforced diverse contexts arise. carriers reveals "doubt orders" therefore seems reasonable 962. passed Ninth 427 (1970), absent infer silence "comprehensive treatment" wiretapping. 643. prompt amending acceptance Circuit's "more overruling opinion." 813. unequivocal statement 115 Cong.Rec. 37192 (1969) (remarks Sen. McClellan). decline lacking. 608-612, 1744, (1966); Wong Yang Sung McGrath, 339 33, 47, 70 445, 452, 616 (1950). viewed wiretaps explicit which, unlike wiretaps, comprehensive scheme. interceptions. plainly unlikely leave question. ante, 177-178, 25. 1945 catalogued Appendix Frankfurter's eloquent Davis 328 582, 616-623, 1256, 1272, 1453. indiscriminate undescribed suspicion. N. Lasson, History Development Constitution 51-55 (1937). oppressive. commanded officers subjects Crown execution," returnable execution, continuous during lifetime reigning sovereign. 53-54. importance resistance emphasized several e. g., Frank Maryland, 359 360, 363-365, 804, 877; Henry 361 98, 100-101, 80 168, 170, 134; Stanford Texas, 379 476, 481-485, 85 506, 509, 431, detail Fraenkel, Concerning Searches Seizures, Harv.L.Rev. (1921). Article XIV Massachusetts 1780. patterned provision. 331 145, 158, 67 1098, 1105, 1399 (Frankfurter, dissenting). 1917 Espionage 228 (allowing stolen felony, unlawfully government). provisions Notes Advisory Committee Rules, U.S.C.App., p. 4512. delegate compatible continued items, Act—or enactment—it Colyer Skeffington, (Mass.1920), rev'd grounds, 277 (CA1 1922). 308 12, 782. 245 1976) (semble ). recognize opinions involving warrantless sort nonstatutory 554, 576; 394. not, rest discussion, infra, 184-185. Admittedly, rely conversation lawyer attempted bribe witness. But, subsequently White, 745, 1122, 453, case. integrity procedures, argument greater strength context American Tobacco Werckmeister, 146 375 1906), 207 284, 72, 52 208 (use goods jurisdiction). edition treatise written Hayden 1967 Professor Wright acutely observed: "Immediately apparent anomaly, might seized, meant wholly strongly-held save few special classes prerequisite encouraged move quickly rulemaking apparatus, responded passage making 'property States.' supplements, soon swallow up, grounds 41(b)." (Footnotes omitted.) Wright, Procedure 664 (1969). comments Senator Allott, Senate, 114 14790 entire belie concept, futility violate Many remain effect, 49 (seizure contraband); 1595 (customs duties; seizures); "does modify act, regulating execution part: objects." acknowledges eliminated "restriction" 170-171, 18. refers nothing silence—the silent evidence, argues "would registers." Admittedly permitting devices. Amendment—a decide—there about forbidden accompany anomaly exist, cured loose tolerate sophisticated techniques presenting dangers 1977) (indicating increasing sophistication registers); cf. Pretzinger, 542 517 tracking devices). significant types investigations used; limit implicit reasoning today. prohibition, 80, dealing ne exeat, 334. reads: "(a) proposition settled 1807 Chief Marshall citation statement: "As preliminary motion, deems declare disclaims constitution, States. "Courts originate possess change principles; created transcend founded, court; heretofore rendered point, member bench has, instant, dissatisfied." Ex parte Bollman, Cranch 75, 93, 554. 299. frequently &Par; 110.27-110.28 faced restraints concomitants independent McIntire Wood, 504, 420; Rosenbaum Bauer, 120 450, 633, 743. factors mentioned above determining dispute. Dugas Surety 300 414, 57 81 720; 698; Morrow Columbia, 135 160, 417 728 party—the Company. explains enter Possibly, controversy, failure 1331. (C.A.10 237. event apart "dispute" inexplicable. explain notable compared rationale See, ("the present, fashion modes inescapable courts") added); 604, 1742, (injunction upheld preserve status quo administrative proceedings progress impairment effective ") concludes functional 175 23. reaches pointing party's true. Orders usually beneficial court. converse, Not Compare 937, 166, forcibly 2231 imposes penalties "forcibly assaults, resists, opposes, prevents, impedes, intimidates, interferes execute section 1917, imposing "assist"

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