Document: 431 U.S. 606 97 S.Ct. 1972 52 L.Ed.2d 617 UNITED STATES, Petitioner,v.Charles W. RAMSEY and James Kelly. No. 76-167. Argued March 30, 1977. Decided June 6, Syllabus Title 19 U.S.C. § 482 implementing postal regulations authorize customs officials to inspect incoming international mail when they have a "reasonable cause suspect" that the contains illegally imported merchandise, although prohibit reading of correspondence absent search warrant. Acting pursuant statute regulations, inspector, based on facts certain letter-sized airmail envelopes were from Thailand, known source narcotics, bulky much heavier than normal letter, opened for inspection at General Post Office in New York City, considered "border" border-search purposes, ultimately found contain heroin. Respondents subsequently indicted convicted narcotics offenses, District Court having denied their motion suppress The Appeals reversed, holding exception Fourth Amendment's warrant requirement applicable persons, baggage, mailed packages did not apply opening mail, Constitution requires before such is showing probable must be made obtained. Held : 1. Under circumstances, inspector had there was merchandise or contraband envelopes, therefore plainly authorized by statute. Pp. 611-616. 2. Amendment does interdict actions taken searching envelopes. 616-625. (a) Border searches without are nonetheless "reasonable" within meaning Amendment. 616-619. (b) inclusion represent any "extension" exception. grounded recognized right sovereign control, subject substantive limitations imposed Constitution, who what may enter country, no different constitutional standards should simply because mailed, carried critical fact being cross border brought one mode transportation rather another. It entry into country it makes resulting "reasonable." 619-621. (c) doctrine "exigent circumstances," but longstanding, historically general principle 621-622. (d) under guidelines only official has reason believe other correspondence, while inside forbidden impermissibly chill exercise free speech First Amendment, "chill" might exist circumstances "minimal" also wholly subjective. 623-624. 176 U.S.App.D.C. 67, 538 F.2d 415, reversed. Kenneth S. Geller, Washington, D. C., petitioner. Allan M. Palmer, respondent Charles Ramsey. Irving R. Panzer, Mr. Justice REHNQUIST delivered opinion Court. 1 Customs officials, acting with violation laws, letter-class first obtaining A divided Columbia Circuit held contrary every which matter,1 forbade 415. We granted Government's petition certiorari resolve this conflict. 429 815, 56, 50 75. now reverse. 2 * Ramsey Kelly jointly commenced heroin-by-mail enterprise area. process involved procuring heroin, letters Bangkok, sent various locations area collection. Two suppliers, Sylvia Bailey William Ward, located West Germany, engaged trafficking during latter part 1973 early 1974. German agents, court-authorized electronic surveillance, intercepted several trans-Atlantic conversations between operation discussed. By late January 1974, Ward gone Thailand. Thai alerted presence authorities, placed them surveillance. observed mailing six boxes; five these recovered; addresses later linked respondents. arrested February 2, 1974; among items seized eleven heroin-filed addressed area, connected 3 days after arrest Inspector George Kallnischkies, United States officer knowledge foregoing events, inspecting sack spotted eight he believed merchandise.2 all appeared him been typed same typewriter, four "rather bulky," suspected correspondence. He took an examining post office, felt letters: "felt like something there, envelope. just plain paper envelope supposed contain." weighed 42 grams, some three times weight letter. Kallnischkies then envelope:3 4 "In I saw cardboard cardboard, if recall, plastic bag containing white powdered substance, which, experience, knew Thailand would 5 "I went ahead removed sample. Gave field test, Marquis Reagent positive reaction heroin." App. 32. 6 proceeded open seven "in lot ways identical"; examination revealed least contents identical: each contained 7 Washington locked pouch where agents Drug Enforcement Administration, warrant, again most heroin.4 resealed, After collected addressees, rendezvoused Ramsey, gave brown bag, federal both them. $1,100 cash, "cutting" material next day, executing upon Ramsey's residence, recovered, inter alia, two pistols. 8 indicted, along 17-count indictment.5 moved heroin pistols.6 motions, bench trial stipulated record, respondents guilty sentenced imprisonment effect term 10 30 years. Circuit, judge dissenting, reversed convictions, "border requirement" routine letter "before opened, secured neutral magistrate." U.S.App.D.C., 73, F.2d, 421.7 II 9 Congress undertaken case. 482, recodification Rev.Stat. 3061, derived Act July 18, 1866, 14 Stat. 178, explicitly deals "envelope": "Any officers persons board vessels . trunk envelope, wherever found, reasonable suspect law .." 11 This provision authorizes inspect, therein stated, mail.8 test adopted is, we think, practical imposes less stringent "probable cause" as issuance warrants. See v. King, 517 350, 352 (CA5 1975); cf. Terry Ohio, 392 1, 8, 21-22, 27, 88 1868, 1872, 1879-1881, 1883, 20 889 (1968). time letters, bulky, many there." doubt "cause envelopes.9 search, therefore, statute.10 12 Since case statute, left question whether nevertheless violated Constitution. Cf. Brignoni-Ponce, 422 873, 877, 95 2574, 2578, 45 607 (1975). Specifically, need decide conceived necessary precondition validity viewed, instead, limitation otherwise existing authority Executive.11 Having acted to, scope of, congressional Act, Kallnischkies' permissible unless III A. 13 That border, long-standing protect itself stopping property crossing virtue occur should, now, require extended demonstration. proposed Bill Rights, including state legislatures September 25, 1789, 97, had, months prior proposal, enacted 31, c. 5, 29. Section 24 "full power authority" "any ship vessel, shall goods, wares duty concealed acknowledgement plenary differentiated more limited particular dwelling-house, store, building, place ." required.12 historical importance enactment manifest. so concluded almost century ago. In Boyd States, 116 616, 623, 524, 528, 29 L.Ed. 746 (1886), observed: "The seizure stolen goods common law; forfeited breach revenue avoid duties payable them, English statutes centuries past; seizures our own acts commencement government. passed regulate collection duties, act 29, 43, provisions effect. As adoption original amendments clear members body regard kind 'unreasonable,' embraced prohibition amendment." (Emphasis supplied.) 15 interpretation, faithfully adhered Carroll 267 132, 280, 69 543 (1925), noting "(T)he denounce seizures, unreasonable," id., 147, 283, distinction requiring cause, searches, 153-154, S.Ct., 285: 16 "It intolerable unreasonable agent stop automobile chance finding liquor thus lawfully using highways inconvenience indignity search. Travellers stopped boundary national self protection reasonably entering identify himself entitled come in, his belongings effects in. But those passage interruption competent believing vehicles carrying illegal merchandise."13 17 More recently, noted longstanding history Thirty-seven Photographs, 402 363, 376, 91 1400, 1408, 28 822 (1971): 18 "But port traveler's home. His let alone neither prevents luggage nor unprotected, illegal, materials possession discovered characteristically do questioned case; old practice intimately associated excluding articles country." 200-Ft. Reels Film, 413 123, 125, 93 2665, 2667, 37 500 (1973), "Import restrictions borders rest considerations rules domestic regulations. gives broad, comprehensive powers '(t)o Commerce foreign Nations.' Art. I, cl. 3. Historically broad prevent smuggling prohibited entry." Finally citing Boyd, stated Almeida-Sanchez 266, 272, 2535, 2539, 596 "without doubt" exclude aliens "can effectuated inspections individuals conveyances seeking borders." 288, 2539 (White, J., dissenting). then, single person item entered outside. There never additional reasonableness depended existence cause. recognition itself.14 reaffirm now. B urge us, however, position somehow different, and, whatever rule respect considerations, full panoply protections, mail. agreed, travelers, even packages, "extend" include letter-size 421. agree represents 21 country. nothing rationale behind suggests will critical. conceded oral argument could traveler, person. Tr. Oral Arg. 43-44. Surely standard carried. 22 Almost ago rejected construing protocol Treaty Berne, 604, importation dutiable items. Cotzhausen Nazro, 107 215, 503, 27 540 (1883). Condemning unsoundness means, Miller, behalf unanimous Court, wrote, 218, 505: 23 "Of avail passenger, citizen foreigner, sex, compelled sign declaration landing, either trunks satchels hand liable duty, do, subjected rigid examination, unwatched, its sealed contents, delivery whom addressed, exempt seizure, though laces, jewels, matter great value introduced countries." doctrine, stemming across borders. view stems, erroneous U.S., 153, 285, reasoned "the difficulty mobile, car 70, 418.15 25 fundamental search" circumstances" all. obtained, similar "search incident lawful arrest" treated Robinson, 414 224, 94 467, 471, 38 427 (1973). think language supra, point abundantly clear. quoted verbatim above-quoted reference "unreasonable" "embraced (Fourth) (A)mendment." Later opinion, commented "established transported vehicle searched consider made." 285 (emphasis supplied). 618, distinguished, types required not: not; vehicular did. border. determination circumstances." 26 relied described Court's refusal recent years twice "to take expansive Patrol. (1975); (1973)." 72, 420. But, opinions suggests, 876, 884, 2581; 272-273, 2539-2540, implicated uphold stops places interior country; express premise checkpoint "functional equivalent." wealth establishing reject distinctions opinion. Nor that, presented case, dictate rights letters. again, distinguish person.16 fundamentally, system shown invade protected rights,17 hence potential constitutionally "unreasonable." believe" laws Applicable flatly prohibit, CFR 145.3 (1976): "No employee read allow origin obtained advance appropriate magistrate action." 31 1702. 32 unable violations, above guidelines, chills speech. Accordingly, find unnecessary reach absence statutory regulatory protection.18 Here forbidden. Any fairly "minimal," Martinez-Fuerte, 428 543, 560, 562, 96 3074, 3083, 3084, 49 1116 (1976); Biswell, 406 311, 316-317, 92 1593, 1596-1597, 87 (1972), subjective.19 33 conclude judgment 34 Reversed. 35 POWELL, concurring. 36 issue expressly envelope" contraband. 482. necessarily enhanced Federal Government enforce adequately protects rights.* join On understanding precedential today's decision go beyond STEVENS, BRENNAN MARSHALL join, dissenting. 39 decisive personal abroad consent sender addressee, merchandise. 40 1971 Department Treasury asserted awkwardly drafted 1866. earlier practice, consistently followed 105 years, allowed except presence, consent, addresses,1 course supported reasons why am convinced secret private Executive here conducted. 41 First, throughout respected individual's interest communication. notion inspected notice addressee abhorrent tradition privacy freedom communicate cannot member grant considering implications.2 Second, legislative 1866 unambiguously discloses very concern voiced debate Senator Howe, assured sponsor legislation bill mails. colloquy too misunderstood: 43 "Mr. HOWE. second third sections speak trunks, seems me enough cover suppose purpose 44 MORRILL (sponsor bill). Of not. propose offer amendment construction. 46 EDMUNDS. danger construction language. usually employed bills. 47 If gentlemen perfectly confident bear construction, receive care press it. 48 PRESIDING OFFICER. Wisconsin withdraws amendment."3 Third, itself, entirety, quite normally used import merchandise.4 true buried deep long sentence authorization found." believe, word "envelope" intended refer ordinary Contemporary American dictionaries emphasize usage descriptive package wrapper well letter.5 emphasis consistent text originally introduced, phrase trunk, envelope."6 Moreover, passed, expressed about fit envelope.7 surely plainer margin; affirmative evidence total disclaimer above. Fourth, series changing administrations over span accorded respect.8 NLRB Bell Aerospace Co., 416 267, 274-275, 1757, 1761-1762, 134; Helvering J. Reynolds Tobacco 306 110, 114-115, 59 423, 425-426, 83 536. perceives new conditions problems justify enlargement adequate century, matters attention Congress. H. K. Porter Co. NLRB, 397 99, 109, 90 821, 826, 146.9 51 Finally, justification claimed weak difficult accept analysis. fear overcome suspicious withhold thereby necessitating return sender. disclosing indicia caused suspicion probable-cause determination. alternatives lead extensive confiscated basis suspect." claims, door wholesale, No Until unambiguous policy unprecedented intrusion vital method communication Nation's interest, address serious decides today. For settled 53 "when action inferior governmental agency accomplished procedures raise questions, initial inquiry determine 'the President Congress, respective powers, specifically decided warranted use.' (Greene McElroy, 360 474,) 507 (79 1377)." Hannah Larche, 363 420, 430, 80 1502, 1508, 1307. 54 Ashwander Tennessee Valley Authority, 297 347-348, 56 466, 483-484, 688 (Brandeis, concurring). affirm Appeals. Several Courts class Milroy, 1033 (CA4), cert. denied, 426 924, 2633, 378 350 Barclift, 514 1073 (CA9), 423 842, 76, 63 Bolin, 554 (CA7 Odland, 502 148 (CA7), 419 1088, 679, 680 (1974). Appeals, approving warrantless borders, indicated governed standards. Doe, 472 982 (CA2), sub nom. Rodriguez 411 969, 2160, 691 (1973); Beckley, 335 86 (CA6 1964), Stone 380 922, 85 921, 807 (1965). reserved Emery, 541 887, 888-889 (1976). air landing Kennedy Airport routing inspections. dispute purposes see n. 11, infra. testified "normal procedure," countries bulkiness, "shake little," "if moves, know check out." 48-49. procedure" seek discovery warrant: "(A) post-opening obviously opening." Brief accordingly accord significance subsequent tried, remained outside States. acknowledges "(t)he weapons result respondents' arrests 'fruit' convictions consequently stand fall offenses." Id., 4. Neither court below standing object light none Government, below, Santana, 38, 2406, 2409, 300 Postal implemented authority. 145.2 61.1 promulgated 1971; implement authorities change 3623(d), prohibits first-class "domestic origin," .," has, terms, application class. amendment, requirements defeated floor House, Cong.Rec. 20482-20483 (1970). Our dissenting Brethren fewer separate refusing follow section. communication." Post, 626. examine it, infra, 616-619, support garnered insofar concerned. Insofar rely ignore 623-624, Postulating sensitive values available time. Ex parte Jackson, 727, 877 (1878) (Fourth analysis only). Most puzzling all, dissent's reliance offered 1970, dearth materials, specific Contrary tenor dissent, defeated, passed. bit dissent quotes, statement Congressman Derwinski, reflects " problem flow pornography greatly compounded.' 626 how solace sort history. relies brief Senate Act. notable brevity ambiguity. letters; refers generally 'examination mails.' 627. Yet, time, "mail" encompassed both. 704. (To extent meant encompass "mails," since interpreted otherwise. 219, 505, (1883).) Perhaps brevity, possible enclosed communications. manifests bill. inspectors vessel same, person, 3, referred wholesale opening, reading, Cong. Globe 39th Cong., 1st Sess., 3440-3441 (1866). means indicates us concerned detecting "trunk"-sized packages. best insufficient precise actually enacted. additionally entirety demonstrating "packages merchandise." 628. assertion assuming judges size comes thrust purpose, Prevent Smuggling." Nowhere however articulated, reflect physical container smuggling, possess reliable indication large smuggled "envelope," derive comfort use contemporary dictionary cite states sense document, letter.' 630 5. this, word, reinforces narrow definition restriction. "consistent construction" Executive. 631. To things covered founders former Attorney General. Op.Atty.Gen. 457 (1886). referring nowhere demonstrates actual interpretation anyone perceived existed laws. marshaled called "consistent" generous appraiser material. final asking proved unworkable. Presumably conclusion drawn Executive's weak. beside point; Congress' words intent Branch less-than-cogent Underlying reasons, apparently, "(i)f mail." 632. specter observe, requirement, totally interdicted regulation. unwarranted speculation, Executive, poses "serious question" avoided. noted, evidently possessed sufficient information meet stricter requirement; "that magistrate, permitting appropriate." 73 421 8. Because disposition question. not, grants urged alternatively Government. "stop, vehicle, beast, manner law, charge, by, 1582 provides, pertinent part, Secretary prescribe baggage .; coming detention regulations." Although "wherever found," City We, question, recently contexts, geographical limits searches. subjects 354 ("(T)he stage routed Alabama, still delivered, inspection"). provided, part: "(I)t collector, customs, fraud, examine, reputable merchants, thereof "(E)very naval surveyor, specially appointed authority, concealed; for, seize, secure merchandise; concealment thereof, place, shall, oath affirmation justice peace, house, (in day only) seize whether, deemed particularly offensive out. Kremen 353 346, 77 828, 876 (1957); Go-Bart Importing 282 344, 356-358, 157-158, 75 374 (1931). 149, 284, reminds construed adopted, conserve public interests individual citizens." explanation cannot, fully explain "exception" doctrine. easily crosses traveler can Too, treatment apparently presumably detained infer carry greater expectation one's 3623(d). justifiable expectations Not statutorily created privacy. 354; (1974); 985. accordingly, occasion restrictions, "chilled," or, were, response requirements. Roaden Kentucky, 496, 502-506, 2796, 2800-2802, 757 19, 1878, (1968); Stanford Texas, 379 476, 485, 506, 511, Wolff McDonnell, 418 539, 2963, 935 (1974), context attorney prisoner-client, "freedom censorship equivalent perusal," 576, 2984. held: "As ability inmates, way constitute censorship, read. communications, inmate's insures prison possibility apparent attorneys, warrants officials' letters." 577, 2985. deal here, course, prisons. Yet safeguards comparable valid Wolff. notes, ante, procedure here. 100 1871 1971, Regulations addressee. 20-21, nn. 12a, (citing regulations). conviction bolstered defeat mails, 612 House Reorganization Salary Adjustment U.S.C., Service. day. 20481 Speaking immediately Derwinski said: "Going afternoon, compounded. want legislate major minutes debate." 20483. expression Representatives issue, reluctance careful consideration questions. See, e. g., 2510 (Omnibus Crime Control Safe Streets 1968) (warrant electronically intercept wire communications); Rep. 1097, 90th 2d 66-76, 88-108, 161-177, 182-183, 187, 214-218, 224-226, 234-239 1968 U.S.Code Admin.News p. 2112. imply demonstrate sensitivity 612, seriously questions my assumption today) indeed matters. Globe, 2596 Further Smuggling Other Purposes, follows: "Be America assembled, That, act, 'vessel,' whenever hereinafter used, description water-craft, raft, contrivance capable auxiliary water; 'vehicle,' carriage, wagon, engine, car, sleigh, sled, sledge, hurdle, cart, artificial contrivance, land. "Sec. And further enacted, occasional inspectors, cutter, Department, writing officer, surveyor district, board, end, hail way, force compel compliance; appear committed, whereby consequence wares, forfeiture, make arrest, escape, attempt pursue violation: Provided, appointment aforesaid filed custom-house made. section stop, districts, otherwise, unlawfully trial; either, together teams motive-power conveying, drawing, propelling appurtenances, covers, concealment, equipage, trappings, appurtenances team, forfeiture; driving conducting, charge carriage travelling, wilfully refuse herein she conviction, fined sum, discretion convicting her, exceeding thousand dollars, fifty dollars; employment female sex; government, prescribe: railway engine team corporation, carriers transaction business forfeiture owners, superintendent, owner unlawful thereon thereby, consenting party, privy transportation." 178-179. "A wrapper; outward covering case." Worcester, Dictionary Language (1860). "That envelops, wraps up, encases, surrounds; cover; especially, letter." N. Webster, An (Goodrich & eds. 1869). These primary definitions given "envelope." "other" deleted 2564 recognize argue deletion "trunk." infer, draftsmen direct comparison restrictive merely mind containers performed packaging function trunk. unrealistic interpret broaden especially Canada North Northwestern frontier: frontier last going increasing custom-houses defrauded cheated." Remarks Eliot, 3419 remarks Morrill, 2563; Williams, 2567. 1886 Jenks 540, 457, 458. broadly. assembled plethora statistical data adopted. Such hoc inform motivation mention tends confirm fashioned,

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