Document: 53 L.Ed.2d 629 97 S.Ct. 2532 433 U.S. 119 David L. JONES, Secretary of the North Carolina Department Correction, et al., Appellants,v.NORTH CAROLINA PRISONERS' LABOR UNION, INC., etc. No. 75-1874. Argued April 19, 1977. Decided June 23, Syllabus Appellee prisoners' labor union brought this action under 42 U.S.C. § 1983, claiming that its First Amendment and equal protection rights were violated by regulations promulgated Correction prohibited prisoners from soliciting other inmates to join Union barred meetings bulk mailings concerning outside sources. A three-judge District Court, which noted appellants had "permitted" Union, granted substantial injunctive relief, having concluded prohibiting inmate-to-inmate solicitation "border(ed) on irrational," since with Jaycees, Alcoholics Anonymous, in one institution Boy Scouts (hereafter collectively "service organizations") been permitted, appellants, absent a showing detriment penological objectives, "may not pick choose depending (their) approval or disapproval message purpose group." Held: 1. The challenged do violate as made applicable States Fourteenth. Pp. 125-133. (a) fact confinement needs penal impose limitations constitutional rights, including those derived Amendment, Pell v. Procunier, 417 817, 822, 94 2800, 2804, 41 495, perhaps most obvious is associational protects prison walls. 125-126. (b) Court overstated what appellants' concession true membership entailed permitted (which involved no dues obligations) because reasonable assumption individual could believe he chose believe, but never acquiesced in, group activity ban inmate was rationally related objectives administration. 126-129. (c) speech are barely implicated here, mail themselves being only cost savings through mailings. 130-131. (d) prohibition does unduly abridge inmates' free rights. If officials otherwise entitled control organized within confines impermissible for such both necessary. supra, at S.Ct., 2804. 131-132. (e) also abridged here. Appellants' conclusion presence would be detrimental order security has conclusively shown wrong, drafted broader than necessary meet perceived threat organizational security. 132-133. 2. against receipt distribution well among whereas service organizations given mailing meeting Equal Protection Clause. constitute "public forum," demonstrated rational basis distinguishing between occupied an adversary role espoused illegal law) performed rehabilitation services). 133-136. 409 F.Supp. 937, reversed. Jacob Safron, Raleigh, N. C., appellants. Kenneth S. Geller, Washington, D. United States, amicus curiae, special leave Court. Norman B. Smith, Greensboro, appellee. Mr. Justice REHNQUIST delivered opinion 1 Pursuant appellee, Prisoners' Labor Inc. (Union), all refused deliver packets publications mailed several redistribution prisoners. instituted action, based challenge these policies. It alleged efforts prevent operation Fourteenth it members refusal grant privileges accorded operating system deprived laws. court convened. After hearing, found merit Union's speech, association, arguments, enjoined preventing "refus(ing) ground they calculated encourage organization solicit joining." held "shall privilege holding neutrally applied . ." 937. We probable jurisdiction consider whether Amendments extend prisoner unions protection. 429 976, 483, 50 583. have decided not, we accordingly reverse judgment 2 * Appellee, self-denominated incorporated late 1974, stated goal "the promotion charitable purposes" formation "prisoners' every jail seek collective bargaining improve working conditions. ."1 proposed work toward alteration elimination practices policies did approve of, serve vehicle presentation resolution grievances. By early 1975, attracted some 2,000 "members" 40 different units throughout Carolina. State Carolina, unhappy developments, set out forming "union." While tolerated "membership," belief, sought prohibit inmates, regulation March 26, proscribed. 3 Suit filed Eastern 18, approximately week before date upon take effect. claimed members, engage protected assembly activities infringed no-solicitation no-meeting rules. deprivation laws Jaycees Anonymous material, denied. declaratory injunction continuation restrictive sought, damages.2 4 convened pursuant 28 §§ 2281 2284, while dismissing prayers damages attorney's fees, relief. "oppose(d) join," either correspondence. F.Supp., 941. noted, id., 942: 5 "(Appellants) sincerely very existence will increase burdens administration essential discipline control. They apprehensive may use establish power bloc population utilized cause slowdowns stoppages undesirable concerted activity." 6 concluded, however, there "no consensus" experts matters, "left firm conviction association necessarily good bad Id., 942-943. felt countenanced bare membership, allow activity, outsiders: 7 "We unable perceive why prisons forbid authorities. This case riot. There scintilla evidence suggest disrupt institutions." 944. 8 questions, respecting literature into question resolved "by application clause fourteenth amendment." Ibid. Finding and, institution, Scouts, group" unless proscribed proper subversive discipline, harmful." failed burden. Appropriate relief thereupon ordered.3 II A. 9 got off wrong foot giving appropriate deference decisions administrators recognition peculiar circumstances confinement. litigation conditions confinement, Eighth recent vintage, long recognized "(l)awful incarceration brings about withdrawal limitation many retraction justified considerations underlying our system." Price Johnston, 334 266, 285, 68 1049, 1060, 92 L.Ed. 1356 (1948); see 495 (1974); Wolff McDonnell, 418 539, 555, 2963, 2974, 935 (1974). implicit incarceration. 2804: 10 "(A) retains inconsistent his status legitimate corrections system. Thus, challenges restrictions asserted inhibit interests must analyzed terms goals system, whose custody care committed accordance due process law." 11 Perhaps curtailed concept itself entails restriction freedom associate institution. Equally obvious, inmate's "status prisoner" operational realities dictate inmates. 12 Because running complex difficult, wide-ranging administrators. Procunier Martinez, 416 396, 405, 1800, 1807, 224 (1974): 13 "(C)ourts ill equipped deal increasingly urgent problems reform. Judicial reflects more healthy sense realism. Moreover, where state institutions involved, federal courts further reason authorities." (Footnote omitted.) 14 See Cruz Beto, 405 319, 321, 1079, 1081, 31 263 (1972). 15 context claims examined. B 16 correctional uniformly testified fraught potential dangers, intended, illegally, press collective-bargaining recognition.4 Appellant Ralph Edwards, Commissioner affidavit: 17 "The creation naturally result increasing existing friction personnel. can create non-union inmates." 18 Jones, stated: 19 divisive element population. In time when already seriously over-crowded, aggravate tense worthwhile projects. But evident organizers could, if spokesman make figures successful, position misuse their influence. become established, probably nothing terminate existence, even became overtly functioning Department. Work mutinies easily foreseeable. Riots chaos almost inevitably result. purposes complaint, dangerous situation exists, control." 20 reject beliefs fanciful erroneous. It, instead, "sincerely," arguably correct.5 Without unreasonable, error conclude needed show more. particular, burden affirmatively "detrimental objectives" "present danger order." 944-945. Rather, "(s)uch peculiarly province professional expertise officials, absence record indicate exaggerated response considerations, should ordinarily defer expert matters." U.S., 827, 2806. correct informed discretion permits them, courts, difficult judgments institutional operations situations this. 21 gave particular emphasis viewed tolerance undermining position. "membership" (as well, meetings, activities) bordering "on "(t)he defendants' own hypothesis dangerous, surely undertaken membership." This, considerably overstates pure entails. Appellants each individuals able communicate ideas Since member qua incurs obligations apparently simply considering himself thought control, means beliefs, impossible. 22 nature prison, nor find had. clearly irrational want, therefor, pose additional unwarranted frictions State's institutions. therefore, reasonable, indeed central, Cf. C 23 invocation associational, change analysis. context, retain "inconsistent Prisons, differ numerous respects society. They, begin with, populated, involuntarily, people who criminal established society orderly governance. seeking "mutual accommodation (of prisons) provisions Constitution general application," 556, 2975, repeatedly need major prisoner's See, e. g., 561-562, 2977-2978; Lanza New York, 370 139, 143, 82 1218, 1220-1221, 384 (1962). These values implicated. supra; Meachum Fano, 427 215, 96 2532, 49 451 (1976). 24 An examination imposed challenge, demonstrates consistent To case.6 Mail implicated; mailings.7 advantages cheaper rates convenience. relied finding violation, infra, 133, clear losing fundamentally implicate values. avenues informational flow remain available, mailing, remains reasonable.8 Saxbe Washington Post Co., 843, 2811, 514 25 Nor trench untowardly Solicitation involves simple expression views disadvantages views; invitation legitimately activity. walls, then account 26 directly regulatory prohibitions, likewise give way management. As whenever institution's exercise discretion, reasonably associations, otherwise, possess likelihood disruption stability, interfere environment. 823, "central consideration internal facilities themselves." 27 presence, prisons, 127. enough say view. interest preserving authority self-evident. Prison life, relations staff, contain ever-present violent confrontation conflagration. 2977-2978. Responsible steps forestall threat, act compile dossier eve riot.9 union, focus grievances to, encouragement rank high anyone's list trouble spots. possible effects are, broadly stems Union. 412-416, 1811-1813. When weighed asserted, reasons sufficiently weighty prevail. D rested Clause strike down denial extended Scouts. just "government group," 944, so, too, groups without first demonstrating 29 analysis faulty two reasons. erroneously treated environment essentially forum." observed last Term upholding political Fort Dix Government enclave military base public forum. Greer Spock, 424 828, 1211, 47 505 stated, 838 n.10, 1217: 30 civilian speakers entertainers sometimes invited appear convert forum confer candidates Fifth right conduct campaigns there. decision authorities lecture drug abuse, religious visiting preacher chapel, rock musical concert supportive mission powerless thereafter any entering speak subject whatever." converted base. Thus demonstrate distinctions groups. City Charlotte Firefighters, 426 283, 2036, 48 636 Here, affidavits exactly allowed operate prison. Both seen serving rehabilitative purpose, harmony desires administrators, determined institution.10 administrators' view differed critically respects.11 32 Those conclusions unreasonable. fundamental appellee past avowed intent pursue relationship officials. Indeed, distinguish note chartered pursued law.12 33 emphatically sufficient, cf. supra. Court's requirement demonstrable harmful pay 1807. precisely matters this, where, confronted Clause, full latitude firmly so similar abused. That requires treat alike differentiation avoid imminent violence. offended neither contrary 34 Reversed. 35 Chief BURGER, concurring. 36 I concur fully opinion. 37 another line cases raising questions regulate administer local nature. Too often confusion decides type case. issue course, "unions" "good" "bad," but, rather, Federal prohibits deciding exclude carry vexing responsibilities determining permit organizations, require them so. 38 solutions arising easy. definition, closed societies populated inability, refusal, conform norms demanded civilized Of necessity, rules far large prevail experience "second guess" legislatures sensitive area except extraordinary circumstances. recognition, imply stripped passes prison's gates. occasions protect certain basic E. Bounds 430 1491, 52 72 (1977). "reflects realism" part understand reforms come, field themselves. And, half dozen years, enlightened significant strides Notable respect grievance procedures Bureau Prisons* after pilot experiments, now number register complaints obtain nonjudicial However, applaud procedures, urged adoption, W. Burger, Report Branch 1973. 59 A.B.A.J. 1125 (1973), constitutionally mandated. Similarly, pass today "social utility" characterized operation. 39 STEVENS, concurring dissenting part. My disagreement extremely narrow. sanctioned restraint discussion relative belonging union. upholds defined "an Ante, 132. mere ante, 128-129. language "no-solicitation regulation" is, somewhat broader.* Therefore, instead concluding entire valid, 136, hold invalid extent exceeds definition. portions claims. MARSHALL, whom BRENNAN joins, dissenting. 43 time, ago, regarded "slave(s) State," "not forfeited liberty, personal " Ruffin Commonwealth, 62 Va. 790, 796 (1871). rejected view, corollary holds keep "hands off" institutions.1 Today, apparent fear reform temerity call "union," takes giant step backwards discredited conception courts. decline hope prove temporary retreat. 44 (1974), forth length my understanding tenet advanced "A shed gate. 'retains ordinary citizen expressly, implication, taken him law.' Coffin Reichard, 143 F.2d 443, 445 (CA6 1944)." 422, 1816 (concurring opinion). follows prisoners, like nonprisoners, "can government chosen effectuate unnecessarily freedoms." 423, 1816. mean expressive inside; Martinez: 'be "in light characteristics environment," ' Healy James, 408 169, 180, 2338, 2345, 266 (1972), exigencies governing persons greater without." 424, mode supported "reasons imperatively justifying deprivation," ibid. altered claimants incarcerated. 45 rejects analytic framework, least applies something called "union."2 testing asks "rationally administration," 129, offered defense "conclusively wrong," proclaiming faithfulness teaching 'a prisoner,' 125, ultimately apply freedom: "are prisoners," 130. 46 Nothing justifies wholesale abandonment traditional principles realize, difficult," 126, officers 'professional expertise' 128, management judges. minimize seriousness significance expertise. seem me running" school city "complex charged tasks principals, college presidents, mayors, councilmen, law enforcement personnel "professional expertise."3 Yet am aware deferred "rational." (1972); Tinker Des Moines Independent Community School District, 393 503, 89 733, 731 (1969); Cox Louisiana, 379 536, 544-551, 85 453, 458-462, 471 (1965); Edwards South 372 229, 83 680, 697 (1963). rule involved. cannot blindly matter understood. administrator's business maintain order, "there inheres less responsive independent branch expression." Freedman Maryland, 380 51, 57-58, 734, 738, 649 (1965). warden seldom criticism dismissal needlessly repressed speech; indeed, knowing repression unnecessary. warden's job jeopardized sure come disorder occur. Consequently, err side too little freedom. occurred report American Bar Association Joint Committee Legal Status Prisoners: "All overreact suggested changes, sweeping merely incremental. (M)any fears voiced 1960s growing tide determinations invalidating pass; instances feared stabilizing influences 1970s."4 cavalierly disregarded adjudicate Far it. officials' 'constitute body properly resort guidance. weight depend thoroughness consideration, validity reasoning factors persuade .,' General Electric Co. Gilbert, 142, 401, 411, 343 (1976), quoting Skidmore Swift & 323 134, 140, 65 161, 164, 124 (1944). point ultimate responsibility evaluating testimony, rest required reach constitutionality approach advocate followed involving Johnson Avery, 747, 718 (1969), example, expressly acknowledged rationality writ writers aiding fellow preparing legal papers, 488, 750. nevertheless unconstitutional impact access Lee 390 333, 88 994, 1212 (1968), inquire segregating race rational, although argued integration southern lead inmates; event segregation Amendment. And (1977); Lee. word deed, then, reaffirmed "a policy judicial encompass failure cognizance valid practice offends guarantee, discharge duty rights." 1807-1808. 51 Once prisoners'-rights cases, dispute here resolved. institutions," 944 (EDNC 1976), acknowledges, 127 n. 5, "that intend (the Union) hamper government," posed order," 945. face findings, "imperatively justif(ied)." barring particularly vulnerable attack. Judge Craven below: "To inviting others borders irrational." 943. irrationality best defend it; Brother STEVENS suggests, 138-139, defends hypothetical banning 'an activity.' 132; 129 (discussing "concerted therefor"). actual bars joining presumably prohibited,5 unconstitutional. outlawing invalidated, fall allows newsletters individually, claim serves "subversive material" primary supplement solicitation;6 overturning sap force rationale excluding exclusion left increases exercising rights7 allowing lower price. would, plainly 54 justifiable previously considered. prisons. leaders "would influence" disruptive, tension App. 121, entirely fanciful. important note, appellee's witnesses, dealt actually play constructive 38, 90-95. seems favor recognizing groups.8 risks inherent organization, how innocuous goals; capable "misus(ing) influence," 84-86, 102-103,9 still 118-119. 55 unique it, widely shared professionals, survive central lesson over century adjudication hazardous enterprise, bear preserve liberty. Whitney California, 274 357, 375-378, 641, 648-649, 71 1095 (1927) (Brandeis, J., concurring); Terminiello Chicago, 337 1, 69 894, 93 1131 (1949); (1969). ABA Committee, put it: doubts raised creating humane open accepted society; democracy self-definitionally risk-taking form government."10 mind, acted wholly irrationally dispositive. immediate functions guarantees freely, favorably organizations. place, manner monitor assure disruptions planned, outlaw assemblies altogether. III 56 adopted today's generally followed, eventually "informed discretion," deigned recognize. sole constraint rationally. Ironically, substantive assert once get "(t)here iron curtain drawn country." 555-556, "(a) prisoner," 2804 intends happen. therefore prior resolved, demise earlier aberration, manifestation phrase "prisoner union" threatening conceptions 57 respectfully dissent. corporation listed Articles Incorporation issued Collective pay, hours employment, N.C.Gen.Stat. 95-98 (1975). Other allegations contained opening outgoing interference visitation paralegals. specific us, further. follows: "(1) Inmates shall invite plaintiff orally written printed communication; provided, outsiders solely denied visited engaged projects same admitted purposes. "(2) Free attorneys, paralegals, friends, relatives, affiliation "(3) "(4) permitted." "it beyond argument (is) charter purports authorize lawfully accomplished." 940 But, actively announced factor likely disruptive influence, effective historical finding, future groundless; there, indicated opposite: "On conflicting hampered ability affected ways voice exists procedure conditions, remedial secured. Affidavit Director With path available transmission grievances, might "desirable" prohibitory acts. 413, 1811, 847, 98 1222, (1976) (POWELL, concurring). complaint laws: Defendants Newsletter arrive bundles distribution, Jaycee violates Plaintiff's laws." likewise, affidavit, "They receive sent directly, receiving material source redistribution. Department's requiring publication(s) publisher. serious problem redistribute fit. impossible inspect magazine, book, etc., insure contraband placed inside publication. exception regard citizens community unlikely attempt smuggle disseminate propaganda 129. N.C. Guidebook, Commissioner's Administrative Directives Publications Received Inmates, 138-139. disavowed intention interfering correspondence discussed, discuss outsiders, 408-409, 1809, total communication information prohibited, affairs clearly, activities, mails. sufficient limiting though "unimpressive submitted justification governmental public." 825, 2805, namely "productive inmates) stable representatives accomplishment .." cease, opportunities assemble cease." 125. 126: Program provide therapeutic support, insight, opportunity productive sharing experiences encountered deteriorative alcoholism. structured peer pressure begins client confined intended Alcoholic community." ibid.: (both) presented staff meaningful courses positive restoration offenders active, lawful participation community. (were) scrutinized, evaluated, approved. Operational guidelines up instance following certify objective programs units." Opposed articulated statement Division Prisons validate associative design organization. accept compromise oral newsletter reiterated goal, charter, authorization cards whereby "authorize agents said represent agent pertaining employment incarceration." Record 25. Tr. Oral Arg. 31, 34-35. Statistics compiled 1975 alone, 5,000 attention procedures. Approximately one-fourth inmate. Preliminary 1976 utilization procedures; estimated 10,000 registered during year. Brief Amicus Curiae, 31-32, 15. development appears slowed rate growth petitions district Annual Director, Office Courts XI48-XI51. "Persons union." Jurisdictional Statement 38. For brief exposition "hands-off" doctrine demise, Fox, Rights Prisoners, 63 J.Crim.L.C. P.S. 162 established. Kusper Pontikes, 414 303, 260 (1973); NAACP Alabama, 357 449, 78 1163, 1488 (1958). "must riot." committee Prisoners (Tent. Draft 1977), Am.Crim.L.Rev. 377, 419 (1977) report). express orderly, addressed report, Standard 6.4 Commentary. smuggled remotely suggests associated purpose. solution mailings, them. Contrary assertion, 130-131, definitely effect costly. Cf., Murdock Pennsylvania, 319 105, 870, 87 1292 (1943); Grosjean Press 297 233, 444, 80 660 (1936). Commentary; Krantz, R. Bell, J. Brant, M. Magruder, Model Rules Regulations Responsibilities, IA-1b, IA-5 Commentary National Advisory Commission Criminal Standards Goals, Corrections, 2.15 Commentary, pp. 58-61 (1973). Note, Bargaining Correctional Institutions: Restructuring Relation Inmate Authority, 81 Yale L.J. 726 concern leadership oppose reforms. 499, 755-756, (1969) (WHITE, dissenting); 866-869, 2823-2824, (1974) dissenting) (rejecting argument). 419.

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