Document: 452 U.S. 473 101 S.Ct. 2468 69 L.Ed.2d 171 Robert HOWE, Sr., Petitioner,v.William French SMITH, Attorney General of United States, et al. No. 80-5392. Argued April 28, 1981. Decided June 17, Syllabus Title 18 U.S.C. § 5003(a) authorizes the to contract with a state "for custody, care, subsistence, education, treatment, and training persons convicted criminal offenses in courts such State," when Director States Bureau Prisons certifies that proper adequate federal "treatment facilities personnel are available." Petitioner was Vermont court first-degree murder arising out rape strangulation an elderly woman. Since had previously closed its only maximum-security prison, petitioner assigned prison having capacity for short-term, but not long-term, incarceration inmates high security needs, it recommended because nature his offense he be transferred prison. A hearing held before Department Corrections at which determined risk, and, ultimately, under between system pursuant 5003(a). Subsequently, filed action Federal District Court, challenging transfer on ground officials lacked statutory authority accept custody. He claimed requires authorities make individual determination each prisoner needs particular specialized treatment program available system, no been made case. The Court denied petitioner's request relief, Appeals affirmed. Held : Section as occurred this Pp. 2473-2477. (a) 5003(a)'s plain language contracts simply also prisoners facilities. requirement certification by is housekeeping measure designed ensure has absorb prisoners. Nothing restricts or limits use those who need some treatment. 480-482. (b) 5003's legislative history reveals enacted deal simple practical problem permitting states their custody same way Government had, time, placing 4002. And nothing makes case one "rare exceptional cases" requiring departure from statute's language. 483-485. (c) contemporaneous uniform construction Prisons, agency proposed enactment charged administration, statute based broad range purposes, including shown record In absence any evidence congressional objection, agency's interpretation must given great weight. 485-487. 625 F.2d 454, William A. Nelson, Washington, D. C., petitioner. Barbara E. Etkind, Philadelphia, Pa., respondent. John J. Easton, Jr., Burlington, Vt., Chief Justice BURGER delivered opinion Court. 1 question presented whether State may 50031 prior being system. 2 * December 1974, Commissioner announced would soon close 187-year-old Windsor State's facility, become inadequate several respects. Rebideau v. Stoneman, 398 F.Supp. 805, 808, n. 7 (Vt.1975). anticipation closing, entered into agreement agreed house prisons up 40 originally committed Vermont.2 recited certified were institutions accommodate 3 1975, finally closed, left minimum-security community correctional centers Correction Diagnostic Treatment Facility St. Albans, Vt. Albans short-term long-term classified risks. II 4 petitioner, Howe, female neighbor. sentenced life imprisonment facility begin serving sentence. Because length term, however, Classification Committee should kept Accordingly, decide institution. Howe afforded advance notice reasons transfer; present hearing; represented law advisor facility's staff, submitted various items opposition transfer. 5 officer institution "no programs exist Vermont, could provide both long term maximum supervision" him. App. 25. found dangerous integrated community-based program. relied psychiatric report describing " 'dangerous person well repeat pattern assaultive behavior toward women time future.' Id., 26. "highly resistant treatment" escape risk. Indeed, escaped wing while detained there trial. 6 On March 9, 1977, Vermont's Acting approved Howe's Under terms incarcerated initially penitentiary Atlanta, Ga., later Terre Haute, Ind. As inmate penitentiaries, enjoyed complete freedom movement within other By contrast, movement, generally confined wing. substantially prisons, although less opportunity take advantage them restrictions mobility facility. two actually participated counseling educational courses. At ran sewing machine until heart attack. His principal activities now knitting crocheting. 8 5, 1978, civil naming defendants Prisons. Respondent Ciuros, Corrections, intervened. Relying Lono Fenton, 581 645 (CA7 1978) (en banc), challenged It position sole transfers inmates, 5003, so argued case, effected special general penological reasons, is, incarceration. 9 Following hearing, holding: 10 "[T]he [A]ct plainly unambiguously showing accordance [the petitioner] transferred. . more than accommodated. That met hand." 480 111, 115 (1978). 11 Second Circuit 454 (1980). observed 5003 "treatment" "custody, convicted." reasoned gives primacy provides basis concluding that, whatever services provided, always furnished statute. While acknowledging modicum support argument, rejected "has statute." F.2d, 457. 12 We granted certiorari resolve conflict Circuits. Sub nom., Civiletti, 449 1123, 938, 67 109 (1981). III 13 challenge here seeking Government, official General, receive hold him penitentiary. 4001(a) citizen shall imprisoned otherwise except Act Congress."3 avers illegally neither nor provision detention. particular, argues narrow limited thrust, identified made, conduct inquiry individualized transferee can provide, treatment.4 hand, respondents contend limited, detention clearly authorized provision. 14 obviously circumstances, our task determine precise circumstances appropriate 15 every involving statute, analysis employed Congress. Rubin 424, 430, 698, 702, 66 633 (1981); Reiter Sonotone Corp., 442 330, 337, 99 2326, 2330, 60 931 (1979). terms, territory [that] Territory." face, encompasses much "Treatment" after all, cataloged; focus upon supports view important listed categories, passage fairly read kind 16 does contest breadth charter just quoted. Rather, focuses certify availability "proper personnel." reads imposing substantive limitation restriction purposes transferred: wit, 17 reading strains meaning act starting point process contractual negotiation envisioned Absent surplus discussions regarding pointless. Once exists—that room inmates—the becomes possibility. clause cannot handle received. There significance fact existence facilities," opposed generally.5 First, facilities" reference existing true, course, used—and, fact, used6—to describe prisons; belie appropriateness penal 19 Second, if, advocates, phrase transferred, rendered internally inconsistent. According virtue 5003(a), if affords needed. However, 5003(c) provides, certain exceptions applicable all subject regulatory scheme governs prisoners.7 contains provisions undermine section For example, another discretion 4082(b), have access rehabilitation programs, Moody Daggett, 429 78, 88, 97 274, 279, 50 236 (1976). sense interpret forcing free thereby denying 20 sum, treatment.8 B 21 When unambiguous, comes end, "in 'rare circumstances.' TVA Hill, 437 153, 187, 33, 98 2279, 2298, 57 117 (1978) (quoting Crooks Harrelson, 282 55, 60, 51 49, 50, 75 L.Ed. 156 (1930)). No rare here; fully supported 5003. 22 disagrees. notes asked Senate floor explain Senator McCarran answered whereas 4002 allows confinement prisoners, 23 "[t]his bill authorize reciprocal arrangement whereby, conditions category cases laws." Cong.Rec. 13543 (1951). 24 finds Senator's words "under conditions" cases." 25 Read whole, solution problem, permit years Until century, speak of; instead, housed prisons. 1952, sufficient number built Congress respond requests where way. response evolving situation. 26 desire help insufficient facilities, sentiment permeates detected even remarks quoted described new "reciprocal" 4002, authorizing extend type service exercise purportedly extended likely understood equally broad. 27 addition McCarran's remarks, relies heavily Report House Judiciary stated: 28 "The legislation offenders used bill, ordinary providing medical meant include corrective preventive guidance defined Youth Act." H.R.Rep.No.1663, 82d Cong., 2d Sess., (1952), U.S.Code Cong. & Admin.News pp. 1420, 1421. 29 reliance understandable, single sentence—especially taken issued five months chamber, Senate, passed 5003—cannot obscure unmistakable intent create nowhere clearer very page: 30 "State many cared prisoners—until own institutions. Today, [virtue 4002], care committee sees reason why not, turn, offenders, reimbursed expenses involved." Ibid. 31 perceived undertake training" institutional do themselves. S.Rep.No.978, 1st clear need. C 32 through administration entitled considerable deference. NLRB Bell Aerospace Co., 416 267, 274-275, 94 1757, 1761, 134 (1974); Udall Tallman, 380 1, 16, 85 792, 801, 616 (1965). Moreover, Bureau's merits greater normal weight drafted steered little debate. 33 served indication construed broadly referred officials. nearly administering Attorneys interpreted consistently grant plenary states, space available. 34 Furthermore, ample express dissatisfaction might administrative early Annual Report, advised statute: 35 "[Section 5003] authorize[s] available, 36 since 1776. reciprocity hitherto existed. anticipated will widely, occasion wish own. vicious intractable offender handled readily institutions, whom needing care." Dept. Justice, 16-17 (1952) (emphasis added). 37 indicated reservation objection year thereafter. 1965, added 5003(d) Canal Zone purview expressly S.Rep.No. 799, 89th (1965), p. 3595. 38 enforcement record. IV 39 language, history, longstanding demonstrate Given disposition issue, unnecessary address arguments judgment 41 Affirmed. 42 STEWART dissents. vacate remand directions dismiss complaint. brought habeas corpus 4001(a), independent Vermont. 43 STEVENS, concurring judgment. 44 I ante, 475, cases."1 indicates intended "those treatment."2 consistent purpose. "that available" surely inconsistent accommodations necessary justify 45 solve. Petitioner's classification especially offender, together closing created sufficiently unusual situation cause fall covers.3 therefore concur Court's judgment, share give carte blanche rent time.4 pertinent part: "(a) [of Prisons] hereby Territory Territory: Provided, reimbursing full costs involved. "(c) Unless specifically provided contract, hereunder regulations violations laws sentence imposed." "1. [United States] furnishings subsistence hospital supplies, "2. without approval application commitment facility." 455, argue standing bring prisoner, merely temporarily Government. This raised first fails proscribing absent detain. If correct authorities, illegal though behalf, pleasure, Though Seventh Circuit, Anthony Wilkinson, 637 1130 (1980), suitable precondition transfer, disavows contention Reply Brief 7. finding needed concept things alcohol drug juveniles. view, secure offenders. statutes referring "penal institutions" "correctional institutions." But Congresses typically concern operation management entities rather processing them. event, places alternative terms. See supra. Only adopted urged banc). Each Circuits consider Sisbarro Warden, 592 (CA1 1979); Beshaw 635 239 (CA3 1980); ex rel. Gereau Henderson, 526 889 (CA5 1976); Fletcher 641 850 (CA10 1981). Those Chairman explaining purpose became Committee. (House Report), word purposefully selected custody: "Frequently, types States. These usually relate juveniles addicts, concerning satisfactory programs. points personnel, providing. 'treatment' (sec. 5006g, title 18, U.S.C.)." 2, Attached letter Deputy supporting legislation. General's understanding 3. attached accompanying 1-2 Cf. 1130, 1140 1980) ("[E]ven something far removed traditional notions incarceration, participate attendant religious, educational, recreational satisfy 5003"), cert. pending, 80-1315. essentially agree Circuit's "It put government rent-a-prison business unless required assistance. own." 645, 648 itself terribly important, example easy Executive Branch cooperate continuing governmental responsibilities sovereign.

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