Respondent Robert O. McDonnell, on behalf of himself and other inmates of the Nebraska Penal and Correctional Complex in Lincoln, Nebraska, filed a complaint under 42 U.S.C. § 1983 challenging several of the practices, rules, and regulations of the Complex.
For present purposes, the pertinent allegations were that disciplinary proceedings did not comply with the Due Process Clause of the Fourteenth Amendment to the Federal Constitution, that the inmate legal assistance program did not meet constitutional standards, and that the regulations governing the inspection of mail to and from attorneys for inmates were unconstitutionally restrictive. Respondent requested damages and injunctive relief.
After an evidentiary hearing, the District Court granted partial relief in 342 F. Supp. 616 (Neb. 1972). Considering itself bound by prior Circuit authority, it rejected the procedural due process claim but held that the prison's policy of inspecting all incoming and outgoing mail to and from attorneys violated prisoners' rights of access to the courts and that the restrictions placed on inmate legal assistance were not constitutionally defective.
The Court of Appeals reversed with respect to the due process claim in 483 F. 2d 1059 (CA8 1973), holding that the procedural requirements outlined by this Court in Morrissey v. Brewer and Gagnon v. Scarpelli should be generally followed in prison disciplinary hearings but left the specific requirements to be determined by the District Court on remand. With respect to a remedy, the court held that Preiser v. Rodriguez forbade the actual restoration of good-time credits in this § 1983 suit but ordered expunged from prison records any determinations of misconduct arrived at in proceedings that failed to comport with due process. The court generally affirmed the judgment with respect to correspondence with attorneys but ordered further proceedings to determine whether the State was meeting its burden under Johnson v. Avery to provide legal assistance to prison inmates, extending the duty to civil rights cases as well as habeas corpus proceedings.
Nebraska statutes assign the chief executive officer of each penal facility responsibility for inmate discipline and provide for a range of possible disciplinary action. Except in flagrant or serious cases, punishment for misconduct shall consist of deprivation of privileges. In cases of flagrant or serious misconduct, the chief executive officer may order that a person's reduction of term as provided in section 83-1,107 be forfeited or withheld and also that the person be confined in a disciplinary cell, with each breach entered in the person's file.
Prison regulations classify misconduct as major or minor, with major misconduct formally reported to an Adjustment Committee composed of the Associate Warden Custody, the Correctional Industries Superintendent, and the Reception Center Director. The Adjustment Committee reviews all misconduct reports, conducts investigations, makes findings, and imposes disciplinary actions, with sanctions including reprimand, restrictions, extra duty, confinement in the Adjustment Center, and withholding of good time. The District Court found that the procedures in effect included daily review of write-ups by the chief correction supervisor, a conference with the chief correction supervisor and the charging party, preparation of a conduct report sent to the Adjustment Committee, a hearing where the report is read and discussed, opportunity for the inmate to ask questions if denying the charge, additional investigations if desired, and imposition of punishment. The litigation also encompassed challenges to the opening and inspection of attorney mail without the inmate present and the adequacy of a single designated inmate legal advisor for assisting other inmates.
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