Document: 417 U.S. 817 94 S.Ct. 2800 41 L.Ed.2d 495 Eve PELL et al., Appellants,v.Raymond K. PROCUNIER, Director, California Department of Corrections, al. Raymond Appellants, v. Booker T. HILLERY, Jr., Nos. 73—754, 73—918. Argued April 16 and 17, 1974. Decided June 24, Syllabus Four prison inmates three professional journalists brought this suit in the District Court challenging constitutionality a regulation, § 415.071, Corrections Manual, which provides that '(p)ress other media interview with specific individual will not be permitted.' That provision was promulgated following violent episode correction authorities attributed at least part to former policy free face-to-face prisoner-press interviews, had resulted relatively small number gaining disproportionate notoriety influence among their fellow inmates. The granted inmate appellees' motion for summary judgment, holding insofar as it prohibited from having communication unconstitutionally infringed inmates' First Fourteenth Amendment freedoms. court dismiss respect claims appellants, rights were infringed, view otherwise available enter state institutions random even broader access afforded prisoners by court's ruling appellees. officials (in No. 73—754) 73—918) have appealed. Held: 1. In light alternative channels are open 415.071 does constitute violation speech. Pp. 821—828. (a) A retains those inconsistent his status prisoner or legitimate penological objectives corrections system, here restrictions on speech must balanced against State's interest confining deter crime, protect society quarantining criminal offenders period during rehabilitative procedures can applied, maintain internal security penal institutions. 822—824. (b) Alternative means remain inmates; they correspond mail persons (including representatives), Procunier Martinez, 416 396, 1800, 40 224; visitation family, clergy, attorneys, friends prior acquaintance; unrestricted opportunity communicate press public through visitors. 824—828. 2. appellants under Amendments deny information general public. Newsmen, policy, visit both maximum minimum sections speak whom may encounter, (unlike members public) also selected random. '(T)he guarantee constitutional right special generally.' Branzburg Hayes, 408 665, 684, 92 2646, 2658, 33 626. 829—835. 364 F.Supp. 196, vacated remanded. Herman Schwartz, University Buffalo Law School, Pell others. John Murphy, Asst. Atty. Gen. Cal., Stanley A. Bass, New York City, Hillery Mr. Justice STEWART delivered opinion Court. 1 These cases cross-appeals judgment three-judge Northern California. plaintiffs four inmates—Booker Hillery, Larry Spain, Bobby Bly, Michael Shane Guile—and journalists—Eve Pell, Betty Segal, Paul Jacobs. defendants Procunier, Director several subordinate officers department. challenge constitutionality, Amendments, interviews They sought injunctive declaratory relief 42 U.S.C. 1983. Section defendant authority vested him 5058 Penal Code is applied uniformly throughout system prohibit between representatives specifically name request interview. accordance 28 §§ 2281 2284, convened hear case.1 2 facts undisputed. Jacobs each requested permission appropriate Guile, respectively. addition, editors certain periodical discuss possibility publishing writings concerning conditions prison.2 Pursuant these requests all denied.3 thereupon sued enjoin continued enforcement regulation. contended violates Amendments. Similarly, asserted limitation regulation places newsgathering activity infringes freedom guaranteed 3 plaintiffs' journalists, FourteenthAmendment With plaintiffs, defendants' dismiss. noted '(e)ven stood before today's (that violated 415.071) given random,' concluded 'that sufficiently protects whatever inmates.' 200. 4 appeal rights. 73—918, rejection claims. We probable jurisdiction appeals consolidated oral argument. 414 1127, 1155, 862, 912, 38 751, 39 108. 5 * claim prohibiting participation newsmen public, Although has never been thought embrace require journalist any citizen listen person's views, let alone publisher publish views newspaper, see Avins Rutgers, State Jersey, 385 F.2d 151 (CA3 1967); Chicago Joint Board, Amal. Clothing Workers Tribune Co., 435 470 (CA7 1970); Associates & Aldrich Co. Times Mirror 440 133 (CA9 1971), we proceed upon hypothesis some circumstances includes willing listener, including representative purpose publication publisher. 6 start familiar proposition '(l)awful incarceration brings about necessary withdrawal many privileges rights, retraction justified considerations underlying our system.' Price Johnston, 334 266, 285, 68 1049, 1060, L.Ed. 1356 (1948). See Cruz Beto, 405 319, 321, 1079, 1081, 31 263 (1972). context corollary principle system. Thus, challenges inhibit interests analyzed terms policies goals whose custody care committed due process law. 7 An important function deterrence crime. premise facility where isolated rest society, condition most people presumably find undesirable, others deterred committing additional offenses. This isolation, course, serves protective time while, hoped, processes work correct offender's demonstrated proclivity. since eventually return another paramount objective rehabilitation its custody. Finally, central institutional consideration within facilities themselves. It assess regulations based prisoners. 8 challenged clearly restricts one manner beyond walls. But merely problem, resolve it. For same could said refusal permit an temporarily leave order outside. Yet no sensibly contend Constitution requires give individualized such requests. Cf. Zemel Rusk, 381 1, 16—17, 85 1271, 1280—1281, 14 179 (1965). properly evaluate think cannot considered isolation but viewed permitted outside prison. recognize there 'may particular qualities inherent sustained, debate, discussion questioning,' (the) existence alternatives (does not) extinguis(h) altogether appellees form access.' Kleindienst Mandel, 753, 765, 2576, 2583, 683 regard 'alternative (communication as) relevant factor' case 'we (are) called balance (legitimate) governmental . interests.' Ibid. 9 One mail. regulations, until recently, censorship statements, inter alia, 'unduly complain' 'magnify grievances,' express 'inflammatory political, racial, religious views,' deemed 'defamatory' 'otherwise inappropriate,' recently held 'the Department's authorized far than administration demands,' accordingly affirmed district invalidating regulations. 416, 1813, 224 (1974). '(t)he correspondents uncensored letter, grounded Amendment, plainly 'liberty' meaning though qualified necessity circumstance imprisonment.' Accordingly, 'decision censor withhold delivery letter accompanied minimal procedural safeguards.' Id., 417, 418, S.Ct., 1814. clear medium written correspondence affords substantially unimpeded channel prison, news media. 10 Moreover, seal off personal contact Inmates receive limited visits families, acquaintance.4 selection categories visitors Director's aid while compromising anticipated content prospective visitor. If member fell categories, suggestion he would inmate. More importantly, however, friends, attorneys who them avenue 11 availability unimpressive if submitted justification restriction recognized, relationship supervise confinement more intimate private citi issues peculiarly expertise.' Preiser Rodriguez, 411 475, 492, 93 1827, 1837, 36 439 (1973). 12 supra, justify substantial imposed When, question involves entry into prisons inmates, obvious considerations, related administrative problems, well accepted itself, placed visitations. So long reasonable effective discrimination involved, believe that, drawing lines, 'prison accorded latitude.' U.S., 1081. 13 contexts, 'time, place manner' (of communicative activity) further significant interests, Grayned City Rockford, 104, 115, 2294, 2303, 222 (1972); Cox Hampshire, 312 569, 575—576, 61 762, 765—766, 1049 (1941); Poulos 345 395, 398, 73 760, 97 1105 (1953); Louisiana, 379 536, 554—555, 453, 464—465, 471 (1965); Adderley Florida, 39, 46—48, 87 242, 246—247, 17 149 (1966). 'The nature place, pattern normal activities, dictate kinds time, reasonable.' Grayned, 116, 2303 (internal quotation marks omitted). 'normal activity' committed—the involuntary large numbers people, capacity violence—necessarily considerable attention devoted maintenance security. expression imposition outsiders takes limiting visitations individuals either inmate—family, acquaintance, legal counsel, clergy. officials, rehabilitation, keeping manageable level compromise Such province expertise and, absence evidence record indicate exaggerated response courts should ordinarily defer expert matters. Courts cannot, abdicate responsibility delineate fundamental liberties. when issue inmate, furthered measure judicial deference owed attempt serve gauging validity 15 inmates,5 say unconstitutional. operates neutral fashion, without expression, falls 'appropriate rules regulations' 'prisoners necessarily subject,' abridge freedoms retained inmates.6 II ask us hold irrespective what liberties them, determination might create present danger served regard, do impairment publish, imposes published prisons, administer prisons. Instead, rely gather interference, assert sources regarded newsworthy information. note outset conceal frustrate press' investigation reporting conditions. Indeed, demonstrates current full opportunities observe conditions.7 regularly conducts tours benefit interested citizens. stop subject encounter. permit, personnel step aside confidential. Apart parts institutions, officials. By token, newsman wishes write story program, sit group meetings participants. short, enjoy 18 sole prohibition designated press. recent vintage, 1971 felt partially attributable interviews. Prior promulgation every virtually wish. Only privilege; did policy. impose access, eliminated privilege formerly vis-a -vis generally.8 19 practice, found effect 145.071 being concentrated who, result, became virtual 'public figures' gained degree because permits clergy limit No like engage discourse. text, aggregate greater Because influence, often source severe disciplinary problems. example, extensive espoused practice noncooperation encouraged follow suit, thus eroding institutions' ability deal effectively generally. words Court, August 21, 1971, '(d)uring escape San Quentin staff two killed. climax mounting problems caused, part, liberal posture 23 adopted mitigate problem.' F.Supp., 198. background consider 'assures political society,' Time, Inc. Hill, 374, 389, 534, 543, 456 (1967), secures flow officials,' Garrison 64, 77, 209, 217, 125 (1964). Sullivan, 376 254, 84 710, 686 "(a)ny restraints comes bearing heavy presumption validity." United States, 403 713, 714, 91 2140, 2141, 29 822 (1971); Organization Better Austin Keefe, 402 415, 1575, Bantam Books, 372 58, 70, 83 631, 639, 574 (1963); Near Minnesota ex rel. Olson, 283 697, 51 625, 75 1357 (1931). Correlatively, ideas published. 762—763, 2581 2582; Georgia, 394 557, 564, 89 1243, 1247, 22 542 (1969). 626 (1972), went acknowledged 'news gathering protections,' id., 707, 2670, 'without protection seeking out news, eviscerated, 681, 2656. abridged requiring reporters disclose identity confidential grand jury needed course good-faith investigation. 'perceive basis law ensuring proceedings (was) insufficient override consequential, uncertain, burden result insisting reporters, citizens, respond questions put valid trial,' 690—691, 2661. case, constitutes interference activities neither consequential nor shown denial particularly, despite press—access generally—face-to-face superior method curtailment amounts unconstitutional agree. 'It generally Despite fact hampered, excluded proceedings, own conferences, official bodies executive session, organizations. Newsmen scenes crime disaster excluded.' 684—685, 2658. bar government interfering way not, accord shared generally.9 thing seek entitled confidentiality sources, cf. restrain emanating sources. supra. quite suggest affirmative duty make finds support decision protections guarantee. reasons stated, reverse Court's affirm vacated, remanded consistent opinion. so ordered. Judgment POWELL, concurring dissenting part. concern prohibits identical States Bureau Prisons statement Saxbe Washington Post 843, 2811, 514. stated my post, 850, I California's absolute ban impermissibly restrains perform constitutionally established informing conduct government. dissent differ respect. Here newsmen. Thus appeals, unlike Post, raise whether demand reporters. agree majority join Part Court.[836] DOUGLAS, BRENNAN MARSHALL join, dissenting. involve federal 73—754 73—918 196. Suit Manual individually upheld prisoners' violative speech, injunction As journalists' claim, noted: herein amicus curiae argue only press'. disagrees.' 199. claim. 73—1265 Federal Policy Statement 1220.1A, 4nb)(6), facility. total Amendment's enjoined enforcement. 357 770. Appeals sub nom. Kleindienst, 161 U.S.App.D.C. 75, 494 994. notes, regarding significantly policies' review. analyzing 'foremost Bill Rights country, detenton, Amendment. Prisoners still 'persons' unless liberty curtailed satisfy requirement process. Free are, pre-eminent immunities citizens.' 428—429, 1818, (Douglas, J., judgment). premise, grossly overbroad permissible. discipline, safety, evaluating context. principles always 'in characteristics environment.' Tinker Des Moines Independent School District, 393 503, 506, 733, 736, 21 731; Healy James, 169, 180, 2338, 2345, 266. powerless limitations particularized security, good All contend, below found, used '(b)road prophylactic area suspect. Precision touchstone closely touching precious freedoms.' NAACP Button, 371 438, 328, 340, 405. And Cantwell Connecticut, 310 296, 311, 60 900, 906, 1213. true left relatives hardly defend overly broad demonstrating completely. Black said: 'I accept Brother Harlan's dissent) abridgment violate methods open. reason strikes me par suppression newspaper city continue radio television stations. validly taken away degrees swoop.' NLRB Fruit Packers, 377 79—80, 1063, 1075, 129 (concurring opinion). decide criticism affairs reduced employees discussing operations media, leaving energy, ability, inclination mails. less offensive principles; flatly government's citizens best knowledge real incentive discipline matter whatsoever. coarse patently '(p)recision touchstone.' 340; Elfbrandt Russell, 384 11, 18, 86 1238, 1241, 321. 73—1265, here, press, impinge guarantee, directly protected infringement rejecting notes applies holds 'newsmen public.' 817, 834, 2800, 2810, 495. dealing possessed enjoining Judge Gesell vindicate rather sovereign scheme, govern informed manner. preferred position enable money, set apart favored class, bring fulfillment public's know. know crucial governing powers people.' 721, 2692, dissenting). Prisons, ultimately populace. Crime, economy, health, education, defense, like, grave incidence effectiveness designed control 'On dat, approximately 1,500,000 (federal, local prison) systems. cost taxpayers over billion dollars annually. Of sentenced 98% society.'1 paramount. asserts effectuate order. complete goes cherished 1265: '(W)hile concerns voiced Prisons) merit protection, total, sweeping chosen impose.' U.S.App.D.C., 86, F.2d, 1005. enouigh press—the institution play role affairs'2—is denied practical achieved exclusion average unlikely inform himself operation requesting relationship. He likely instead, values indeed ironic noting gone expanded include Could employees? footing expanding everyone? regard. Since basic application Fourteenth,3 fare better. litigation first initiated single judge proceeded nearly year focused Penitentiary, confined, occur, defendants, except employed. After briefed argued, preliminarily 415.071. then statewide application. Thereafter pass ceased litigation. There magazine permits, case-by-case basis, authors publishers. made meeting Hillery's works. hand, indicated wished article subject. appears likelihood appear codified expressly articulated applicable rule visiting Penitentiar indicates approved 'members family standing.' clients. nothing dispute parties visits. disagreement suggested use mails inarticulate illiterate. indication, suffer disabilities. affirmatively shows writers. complaint filed class action, moved certify action required Fed.Rules Civ.Proc. 23(b)(3) (c). short answer contention finding themselves Even literate articulate, commit thoughts writing Johnson Avery, 483, 747, 718 Merely need assistance utilize ineffective alternative, unless, receiving assistance. restricting burdens petition redress grievances. Communication grievances, opinion, legislative branches think, prisoners, together accords infra, 2808, satisfies executive, legislative, directly. 2600 confidentially officeholder. various explicitly Governor, elected official, appointed head agency. acted assure relief. See, e.g., re Jordan, Cal.3d 930, 103 Cal.Rptr. 849, 500 P.2d 873 Van Geldern, 832, 698, 489 578 Harrell, 675, 504, 640 (1970). 845.4 Government makes liable intentional obtain confinement. reflects recognition Nation's great importance. Chief commented, 'continue brush rug guilty sentence. melancholy truth tragic outbreaks past years focus widespread Burger, Our Options Limited, Vill.L.Rev. 165, 167 Along correctly observed '(i)f want change, attitudes toward ex-prisoners change. you zealot reform.' W. Whom Bell Tolls, reprinted 25 Record N.Y.C.B.A. (Supp.) 14, 20, Warren 1281, (1965), '(t)here few clothed ingenious argument garb decreased data flow. unauthorized White House diminishes citizen's country run, right. carry unrestrained information.' Subcommittee Courts, Civil Liberties, Administration Committee Judiciary, 93d Cong., 2d Sess., Report Inspection Facilities Leavenworth Penitentiary Medical Center Comm.Print 1974). Mills Alabama, 214, 219, 1434, 1437, 484. 'While Hughes Stromberg California, 359, 532, 1117, Due Process Clause Fourteenth, become customary foundation entire is, 1819,

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