Document: 481 U.S. 739 107 S.Ct. 2095 95 L.Ed.2d 697 UNITED STATES, Petitionerv.Anthony SALERNO and Vincent Cafaro. No. 86-87. Argued Jan. 21, 1987. Decided May 26, Syllabus The Bail Reform Act of 1984 (Act) requires courts to detain prior trial arrestees charged with certain serious felonies if the Government demonstrates by clear convincing evidence after an adversary hearing that no release conditions "will reasonably assure . safety any other person community." 18 U.S.C. § 3142(e) (1982 ed., Supp. III). provides a number procedural rights at detention hearing, including right request counsel, testify, present witnesses, proffer evidence, cross-examine witnesses. also specifies factors be considered in making decision, nature seriousness charges, substantiality Government's arrestee's background characteristics, danger posed his release. Under Act, decision must supported written findings fact statement reasons, is immediately reviewable. After under District Court ordered respondents, who had been 35 acts racketeering activity. Appeals reversed, holding 3142(e)'s authorization pretrial on ground future dangerousness facially unconstitutional as violative Fifth Amendment's substantive due process guarantee. Held: 1. Given Act's legitimate compelling regulatory purpose protections it offers, not invalid Due Process Clause. Pp. 746-752. (a) argument violates because authorizes constitutes impermissible punishment before unpersuasive. legislative history clearly indicates Congress formulated provisions for dangerous individuals, but potential solution pressing societal problem crimes committed persons Preventing community goal. Moreover, incidents are excessive relation goal, since carefully limits circumstances which may sought most crimes, arrestee entitled prompt maximum length limited Speedy Trial detainees housed apart from convicts. Thus, permissible regulation rather than punishment. 746-748. (b) erred ruling Clause categorically prohibits imposed measure danger. interest can, appropriate circumstances, outweigh individual's liberty interest. Such exist here. narrowly focuses particularly acute problem—crime arrestees—in interests overwhelming. operates only individuals have arrested particular extremely offenses, delineates will permitted. 748-751. (c) extensive safeguards specifically designed further accuracy likelihood-of-future-dangerousness determination, sufficient withstand respondents' facial challenge, they more "adequate authorize least some [persons] crimes." Schall v. Martin, 467 253, 264, 104 2403, 2409, 81 207. 751-752. 2. Section Excessive Eighth Amendment. contention allows essentially set bail infinite amount reasons related risk flight persuasive. Nothing Clause's text setting solely prevention flight. Where has mandated basis here, public safety—the Amendment does require bail. 752-755. 794 F.2d 64 (CA 2 1986), reversed. REHNQUIST, C.J., delivered opinion Court, WHITE, BLACKMUN, POWELL, O'CONNOR, SCALIA, JJ., joined. MARSHALL, J., filed dissenting opinion, BRENNAN, joined, post, p. ----. STEVENS, Charles Fried, Sol. Gen., Washington, D.C., petitioner. Anthony M. Cardinale, Boston, Mass., respondents. Chief Justice REHNQUIST Court. 1 federal court pending United States Second Circuit struck down this provision unconstitutional, because, court's words, type "substantive process." We granted certiorari conflict among Courts regarding validity Act.1 479 929, 397, 93 351 (1986). hold that, against attack mounted these fully comports constitutional requirements. therefore reverse. * Responding "the alarming release," S.Rep. 98-225, 3 (1983), Code Cong. & Admin. News 1984, pp. 3182, 3185 3141 et seq. III), crisis courts. represents National Legislature's response numerous perceived deficiencies process. By providing sweeping changes both way consider applications granted, hoped "give adequate authority make decisions give recognition pose others released." 3, U.S.Code Admin.News 3185. To end, 3141(a) judicial officer determine whether shall detained. "[i]f, pursuant subsection (f), finds condition or combination appearance required community, he order trial." 3142(f) safeguards. He presence counsel testify witnesses behalf, well appearing hearing. If can state writing, 3142(i), support conclusion "clear evidence," 3142(f). 4 given unbridled discretion determination. specified considerations relevant decision. These include arrestee, suspect's 3142(g). Should detention, detainee expedited appellate review order. §§ 3145(b), (c). 5 Respondents Salerno Cafaro were March 1986, being 29-count indictment alleging various Racketeer Influenced Corrupt Organizations (RICO) violations, mail wire fraud extortion, criminal gambling violations. RICO counts alleged activity, fraud, gambling, conspiracy commit murder. At arraignment, moved detained 3142(e), would person. held made detailed evidence. case showed was "boss" Genovese crime family La Cosa Nostra "captain" family. According proffer, based large part conversations intercepted court-ordered wiretap, two respondents participated wide-ranging conspiracies aid their illegitimate enterprises through violent means. offered testimony its assert personally murder conspiracies. opposed motion challenging credibility several character letter doctor stating suffering medical condition. presented instead characterized wiretap merely "tough talk." 6 motion, concluding established ensure person: 7 "The activities organization such Family do cease arrest principals even stringent conditions. illegal businesses, place many years, constant attention protection, fail. recognizes strong incentive leadership continue business usual. When usual involves threats, beatings, murder, people self-evident." 631 F.Supp. 1364, 1375 (S.D.N.Y.1986).2 8 appealed, contending extent permits likely face. Over dissent, agreed. Although agreed could defendants intimidate otherwise jeopardize process, found "§ [on dangerousness] repugnant concept we believe total deprivation simply means preventing Id., 71-72. concluded not, consistent accused thought community. 72, quoting Melendez-Carrion, 790 F. 2d 984, 1000-1001 (CA2 1986) (opinion Newman, J.). It reasoned our law system holds accountable past actions, anticipated actions. threatened flee trial, serve basic objective system—bringing trial. distinguished Gerstein Pugh, 420 103, 854, 43 54 (1975), upheld police arrest. construed limiting " 'administrative steps incident arrest.' F.2d, 74, Gerstein, supra, U.S., 114, S.Ct., 863. 207 (1984), upholding postarrest, juveniles, inapposite juveniles lesser adults. judge face, adequately balanced Federal detainee's interests. II 9 A challenge is, course, difficult mount successfully, challenger establish exists valid. might operate unconstitutionally conceivable insufficient render wholly invalid, recognized "overbreadth" doctrine outside context First 269, n. 18, 2412, 18. think failed shoulder heavy burden demonstrate "facially" unconstitutional.3 10 grounds invalidating permitting dangerousness. First, rely upon Appeals' exceeds limitations placed Second, contend contravenes proscription treat contentions turn. A. 11 "No deprived life, liberty, property, without law. ." This protects types government action. So-called process" prevents engaging conduct "shocks conscience," Rochin California, 342 165, 172, 72 205, 209, 96 L.Ed. 183 (1952), interferes "implicit liberty," Palko Connecticut, 302 319, 325-326, 58 149, 152, 82 288 (1937). action depriving property survives scrutiny, still implemented fair manner. Mathews Eldridge, 424 335, 893, 903, 47 (1976). requirement traditionally referred "procedural" 12 first argue See Bell Wolfish, 441 520, 535, 16, 99 1861, 1872, 60 447 (1979). Government, however, never argued "punishment." assumed regulatory, penal, agree is. 13 As initial matter, mere inexorably lead 537, 1873. restriction regulation, look intent. 2412. Unless expressly intended impose punitive restrictions, punitive/regulatory distinction turns 'whether alternative [the restriction] rationally connected assignable it, appears assigned [to it].' Ibid., Kennedy Mendoza-Martinez, 372 144, 168-169, 83 554, 567-568, 644 (1963). 14 conclude falls side dichotomy. did formulate individuals. 8. problem. 4-7. There doubt supra. 15 Nor goal achieve. crimes. (detention hearings available violence, offenses sentence life imprisonment death, drug repeat offenders). ibid., time Act.4 3161 ed. confinement envisioned "appear reflect purposes relied the" Government. 270, 2413. Schall, statute issue here "facility separate, practicable, awaiting serving sentences custody appeal." 3142(i)(2). conclude, therefore, contemplated nature, constitute violation 16 nevertheless measure, regard duration detention." 71. characterize erecting impenetrable "wall" area "no governmental interest—rational, important, otherwise—may surmount." Brief 16. 17 lays categorical imperative. repeatedly For example, times war insurrection, when society's peak, whom believes dangerous. Ludecke Watkins, 335 160, 68 1429, 92 1881 (1948) (approving unreviewable executive power enemy aliens war); Moyer Peabody, 212 78, 84-85, 29 235, 236-237, 53 410 (1909) (rejecting claim individual jailed probable cause Governor insurrection). Even exigencies war, sufficiently justify persons. absolute barrier potentially resident deportation proceedings. Carlson Landon, 524, 537-542, 525, 532-535, 547 (1952); Wong Wing States, 163 228, 977, 41 140 (1896). mentally unstable public, Addington Texas, 418, 1804, 323 (1979), become incompetent stand Jackson Indiana, 406 715, 731-739, 1845, 1854-1858, 32 435 (1972); Greenwood 350 366, 76 410, 100 412 (1956). approved postarrest continuing competent adults face substantial restrictions result operation justice system. suspect crime, him until neutral magistrate determines exists. (1975). Finally, concede noted incarcerated presents flight, see 534, 1871, all cases exceptions "general rule" judgment guilt freely conceded, show rule congressional challenged hardly totally novel. well-established government, special restrain individuals' conviction, evaluated precisely same manner laws discussed above. 19 government's compelling. De Veau Braisted, 363 155, 80 1146, 1152, 1109 (1960). In strength State's juvenile crime. general concern less suspects Indeed, "[t]he harm suffered victim dependent age perpetrator." 264-265, 2410. responds particularized sustained Schall. permitted charge showing undefined contrast, specific category offenses. far responsible 6-7. scattershot attempt incapacitate those suspected enough. full-blown convince decisionmaker While compelling, heightened musters proof already indicted answer demonstrable narrow greatest. 20 On scale, liberty. minimize importance fundamental right. But, hold, may, where weighty, subordinated greater needs society. Congress' careful delineation satisfies standard. proves identified articulable threat Clause, disable executing threat. cannot "offends principle so rooted traditions conscience ranked fundamental." Snyder Massachusetts, 291 97, 105, 330, 332, 78 674 (1934). 21 dispose briefly procedures Act. sustain them need find crimes," circumstances. pass test. stated "there nothing inherently unattainable about prediction conduct." 278, 2417; Jurek 428 262, 274, 2950, 2957, 49 929 (1976) (joint Stewart, JJ.); id., 279, 2959-2960 (WHITE, concurring judgment). 22 evaluates likelihood Detainees They own information otherwise, appear Ibid. responsibility determining appropriateness guided statutorily enumerated factors, weight characteristics putative offender, prove detain. 3142(i). provisions, 3145(c), provide immediate 23 suffice repel challenge. exacting context, 275-281, 2415-2418, exceed what necessary effect B 24 address founded 25 addresses "[e]xcessive required." says all. grants calculated Stack Boyle, 1, 5, (1951), "[b]ail figure higher defendant's trial] 'excessive' Amendment." view, discovered absolute. refuse capital cases. And, admit, defendant intimidating 21-22. sole bail—to integrity 26 primary function safeguard courts' role adjudicating innocence defendants, reject proposition pursuing admittedly above-quoted dictum Boyle too slender reed rest argument. occasion admit bail, allowed bailed. case, sum arrestees' 27 illuminated Court's just four months later (1952). remarkably similar action, determination deportability. Attorney General refused "on there reasonable [their] prejudicial endanger welfare States." 529, 528-529 (emphasis added). brought bring us today: admitted squarely rejected proposition: 28 clause lifted slight English Bill Rights England accord cases, proper grant carried over into Rights, said indicated different concept. prevented defining classes country. compulsory death. very language fails say arrests bailable." 545-546, 536-537 (footnotes omitted). Landon civil decide today speaks define imposes powers area, questions arguable limitation proposed "excessive" light evil. Of excessive, compare seeks protect response. more. III 30 society norm, exception. fall within dispel. above attend unwilling every government—a indeed lives citizens—on either 31 Reversed. 33 BRENNAN joins, dissenting. 34 brings declares innocent indefinitely, allegations legally presumed untrue, shows satisfaction unrelated future. statutes, usages tyranny excesses bitter experience teaches call state, long incompatible human protected Constitution. Today majority otherwise. Its disregards principles centuries ago enshrined beyond reach interference Rights. few preliminary words respect majority's treatment facts case. paragraphs devotes posture correct, omit matters legal relevance. 36 Solicitor General's petition July 1986. October 9, respondent petition. No behalf November 37 19, convicted jury charges January 13, 1987, sentenced years' imprisonment. date, longer keeping incarcerated; take commitment thus became moot Salerno.1 38 situation disturbing. early cooperating witness, assisting investigation "by working covert capacity."2 revealed codefendants, Salerno. released, ostensibly "temporarily care treatment," consent. Docket, 86 Cr. 245-2, (MJL) (S.D.N.Y.) (Lowe, J.).3 conditioned execution personal recognizance bond $1 million, Supp.III). short, informant better purposes. Cafaro, justiciable bearing essential jurisdiction us. 39 invites constitutionality involving one century jail another released appeal consent, while informant. raise, least, question jurisdiction, now actual controversy between parties. recently said, "Article Constitution live decides case; enough decided whose reviewing." Burke Barnes, 361, 363, 734, 736, 732 (1987); Sosna Iowa, 419 393, 402, 553, 558-559, 42 532 (1975); Golden Zwickler, 394 108, 89 956, 959-960, 113 (1969). Only flatly ignoring able maintain pretense hurry reach. 40 approaches dividing discussion sections, concerned guarantees implicit protection afforded sterile formalism, divides unitary independent parts then professes individually inadequate. false dichotomy concerning legislation. concludes measure. ease reached suggests worthlessness achievement. major premise "[u]nless ' "whether it]." Ante, 747 (citations "Congress individuals," "legitimate goal" "preventing Ibid.4 Concluding element guarantee invalidates statute. purports justify. Let apply reasoning similar, hypothetical investigation, (not unrealistically) proportion perpetrated unemployed. determines, equally reasonably, much night. From amongst panoply "potential solutions," chooses permits, proceedings, imposition dusk-to-dawn curfew anyone Since enacted punishing unemployed, would, according analysis, "regulatory" statute, entirely compatible components absurdity arises, cramped proceeds though free conviction. technique infringing simple: redefine claimed "regulation," and, magically, imposition. Because, I discuss Part III, infra, infringed legislation, exercise obfuscation. 44 logic analysis unsatisfactory. Amendment, notes, states declares, undeniable, that: "[t]his all." 752. stays jail. achieved denied altogether. Whether sets million refuses all, consequences indistinguishable. sophistry suggest former latter. preventive kind; district refuse, despite absence constitutional, since, majority, "says 45 But perhaps, says, manifest avoided. Perhaps addressed Judiciary. "[W]e today," bail." 754. correct today; ago. statutes purport accomplish forbids, imposing cruel unusual punishments, stand. See, e.g., Trop Dulles, 356 86, 590, 630 (1958); Furman Georgia, 408 238, 2726, 346 (1972). required, nor fines imposed, punishments inflicted," absolutely speculation forbidden inflict bail.5 46 attempts deny relevance unavailing, nonetheless prohibition "to response." concedes, must, "when more." 754—755. follows "compelling" acted denial ask, disingenuous division contained unconstitutional. ask apparent inconvenient. essence found, ironically enough, refer. Title 3142(j) III) "[n]othing section modifying presumption innocence." pith abhorrent innocence. untenable arises specious protecting invaluable 48 favor undoubted law, axiomatic elementary, enforcement lies foundation administration law." Coffin 156 432, 453, 394, 403, (1895). Our belief, reinforced centuries, proved guilty, like companion doubt, 325, (1937), contravention Estelle Williams, 425 501, 503, 1691, 1692-1693, 126 (1976); re Winship, 397 358, 364, 90 1068, 1072-1073, 368 (1970). Taylor Kentucky, 436 478, 483, 98 1930, 1933-1934, 56 468 (1978); Kentucky Whorton, 786, 790, 2088, 2090, 640 (1979) (Stewart, dissenting). imprison dangerous; necessary. let suppose should acquitted. dangerous? yes, allow someone uncommitted "proof" doubt. once failed, continue. declare day morning acquittal. untried somehow permit acquittal inescapable turned guilty charged, left devices soon something else. 'If suffices accuse, innocent?' 455, 403 (quoting Ammianus Marcellinus, Rerum Gestarum Libri Qui Supersunt, L. XVIII, c. A.D. 359). 50 sure, consequences. establishes offense committed, it. Upon warrant issue; period administrative occur magistrate. Once prevent becoming fugitive. connection charging instrument 51 "release accused's giving assurance submit guilty. Like ancient practice securing oaths sureties accused, modern requiring deposit money subject forfeiture serves additional accused." 4-5, (1951) (citation omitted).6 52 finding conveys try, try imports necessity processes evaded obstructed.7 "Pretrial large, justified arrested." 64, 73 1002 J.)). purportedly authorized bears cause, scope weighing excessiveness novel plays vital Reviewing application members American Communist Party Smith 2385, wrote: "Grave defendants] expected do, addition done assume disposed opportune disloyal act helpful countries, reconcile traditional jailing yet Imprisonment predicted unconsummated unprecedented country fraught injustice. Williamson 1379, 1382 (1950) chambers) (footnote 55 Vinson wrote supra: "Unless th[e] preserved, innocence, secured struggle, lose meaning." 4, 3. IV peculiar evident defects upholds today. Respondent originally indeterminate believed (or professed believe) imminently That apparently vanished, point agent eloquent demonstration coercive prediction, dangers almost inevitable abuses cherished liberties 57 "It summary frequently forged controversies nice people." Rabinowitz, 339 56, 69, 70 430, 436, 94 653 (Frankfurter, Honoring often difficult; sometimes pay social costs values espouse. end innocent; shortcuts injure wrongfully ultimately, ourselves. Throughout world men, women, children interned trials come mockery word, governments "dangerous." Constitution, construction began ago, shelter forever evils unchecked power. 200 years slowly, efforts, grown durable, expansive, just. lack courage, self-restraint, applies itself ominous demolition. Theirs truly go forth authority, back respect. 59 dissent. 61 brief ante, 748—749, Greene, 497 1088-1089 (CA7 1974) (Stevens, dissenting).1 use Judge Feinberg's accept virtual certainty she kill group Salerno, 77 (dissenting opinion). Similarly, am during crisis. obviously lurk preclude me answering broad MARSHALL has. Nonetheless, firmly allowing Whatever answers mentioned, evaluating detention. 62 imminent emergency regardless convicted, acquitted offense. unrealistic indicted, moment grand past.2 vanish happens acquit them. demonstrated cannot, used create class, are, alone, eligible 63 Several combine uneasy feeling MARSHALL's strongly possibility interested litigating "test case" resolving employ him. Cafaro's curious content Salerno's lawyer Salerno's. merits reached, arguments Parts His conclusion, Court's, faithful "fundamental understood Lochner New York, 198 45, 76, 539, 547, 937 (1905) (Holmes, Accordingly, respectfully Every Walker, 805 1042 (CA11 1986); Rodriguez, 803 1102 Simpkins, 255 U.S.App.D.C. 306, 801 520 (1986); Zannino, 798 544 (CA1 Perry, 788 (CA3), cert. denied, U .S. 864, 218, 146 Portes, 786 758 1985). subsequently proceedings judge. confined sentence. incarceration remains alive properly resolution. intimate view aspects applied excessively prolonged, punitive, Had executed immediately, ordinary certainly issued following order, consent: "Inasmuch presently al., 245 (MJL), "IT IS HEREBY ORDERED status above-captioned remain 1987 sentencing, Court." Order 85 139 (RO) (Owen, curious. "a term imprisonment," released. 3143(b)(1) dangerous, vain keep characterization activities, along account agent, affidavit Assistant instant occurred submitted Affidavit Warren Neil Eggleston, dated 245, (S.D.N.Y.). Further particulars agreement precise terms included record, declined documents reply stated: "On 8, temporarily treatment. Because continues controversy." Reply 1-2, inform involved bond, reveal witness. understand how representation "still order" reconciled bond. enactment achievement primarily States. contain explicit delegation administer limit definition poses commission asserted violate nowhere identifies source punished court. expressed federalism vanishes threatens interfere attainment desired result. refers 545, 536-537, adopted 1689, Wm. Mary, Sess. 2, ch. II, I(10), "[i]n meager Black: 1789, 1689." 557, 542 infringement Legislature, whatever origins, interpreted And course so, generations judges flee. irrebuttable, probability Thus perceives exception example true, observes, assurance, necessary, obstruct destruction procuring intimidation subornation perjury. benefits engage inimical justice, offers prospectively, tampered with. Cf. Carbo 662, 769 (1962) (Douglas, (bail phone calls severely beaten). "If overwhelmingly skyjacker, insane act, virtually resume behavior free, predictable man capacity commit?" 1088. indictment,

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