[Federal Register Volume 60, Number 172 (Wednesday, September 6, 1995)]
[Rules and Regulations]
[Pages 46485-46487]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-21934]



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DEPARTMENT OF JUSTICE

Bureau of Prisons

28 CFR Part 548

[BOP 1011-I]
RIN 1120-AA17


Religious Beliefs and Practices

AGENCY: Bureau of Prisons, Justice.

ACTION: Interim rule.

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SUMMARY: In this interim rule, the Bureau of Prisons is amending its 
regulations on Religious Beliefs and Practices in order to provide for 
the uniform implementation of a common fare religious diet menu and to 
simplify and update procedures relating to religious beliefs and 
practices.

DATES: Effective September 6, 1995; comments due by November 6, 1995.

ADDRESSES: Office of General Counsel, Bureau of Prisons, HOLC room 754, 
320 First Street, NW., Washington, DC 20534.

FOR FURTHER INFORMATION CONTACT: Roy Nanovic, Office of General 
Counsel, Bureau of Prisons, phone (202) 514-6655.

SUPPLEMENTARY INFORMATION: The Bureau of Prisons is amending its 
regulations on Religious Beliefs and Practices. A final rule on this 
subject was published in the Federal Register December 14, 1984 (49 FR 
48902).
    The Bureau of Prisons is updating its regulations on Religious 
Beliefs and Practices to include provisions for the implementation of a 
common fare religious diet. In addition, the regulations have been 
revised and reorganized for the sake of clarity. A discussion of the 
specific changes follows.
    In Sec. 548.10, paragraph (a) has been revised for the sake of 
clarity. Paragraph (b) has been revised for the sake of clarity and to 
provide examples of religious activity or practice. Paragraph (c) has 
been revised to clarify that an inmate may request at any time to 
change religious preference by notifying the chaplain in writing. This 
revision is necessary to provide for adequate documentation (i.e., 
requiring the notification in writing) of the inmate's request. The 
change will then be effected in a timely fashion.
    The material in Secs. 548.12 through 548.15 has been revised and 
reorganized as Secs. 548.12 through 548.20.
    New Sec. 548.12 restates material formerly in old Sec. 548.12(a). 
As revised, this section on chaplains now also specifies that pastoral 
care and counseling from representatives in the community are available 
in accordance with the provisions of new Secs. 548.14 and 548.19.
    New Sec. 548.13 restates material formerly in old Secs. 548.12 (b) 
and 548.15 (b). As revised, new Sec. 548.13 emphasizes that chaplains 
are responsible for directing the institution's religious activities 
and that each institution shall have space designated for the conduct 
of religious activities.
    New Sec. 548.14 restates material formerly in old Sec. 548.12 (c) 
regarding pastoral care and counseling available from representatives 
in the community. As revised these provisions may require verification 
of a volunteer's or contractor's religious credentials from a 
recognized member of the faith group.
    New Sec. 548.15 consolidates material from old Sec. 548.12 (d) and 
(e). As revised, this section now specifies that attendance at 
religious activities is voluntary and, unless otherwise specifically 
determined by the Warden, is open to all.
    New Sec. 548.16 consolidates material from old Sec. 548.12 (f) and 
(g). As revised, paragraph (a) of new Sec. 548.16 clarifies that 
religious items are considered to be part of the inmate's personal 
property and are subject to normal considerations of safety and 
security. This paragraph also provides that the chaplain is to verify 
the religious significance for the Warden's approval. Paragraph (b) 
restates the provisions of former Sec. 548.12(f) regarding the wearing 
of religious items during religious services, ceremonies, and meetings 
in the chapel or within the institution. Paragraph (c) of new 
Sec. 548.16 restates the provisions of former Sec. 548.12(g). Revised 
paragraph (c) also requires that the distribution to inmates of 
religious literature purchased by or donated to the Bureau is 
contingent upon the approval of the institution's chaplain. This change 
is intended to ensure that inmates are not coerced or harassed to 
change religious affiliation.
    New Sec. 548.17 restates provisions from former Sec. 548.14 
covering work assignments. As revised, this section broadens 
applicability by covering instances where a religious tenet is 
jeopardized by a particular work assignment and designates the chaplain 
as being responsible for verifying the specific religious tenets. The 
revised section clarifies procedures by specifying that the inmate 
makes the request in writing.
    New Sec. 548.18 restates provisions from former Sec. 548.15(a) 
regarding religious observances. As revised, this section clarifies 
procedures for the submission of an inmate's request for time off from 
work to observe a religious holy day and requires that the chaplain 
work with requesting inmates to accommodate a proper observance of the 
holy day celebration.
    New Sec. 548.19 derives from an expansion of provisions from former 
Sec. 548.12(c) regarding pastoral visits. As added, this section 
requires that the chaplain facilitate arrangements for pastoral visits 
by a clergyperson or representative of the inmate's faith if requested 
by an inmate and gives the chaplain the discretion to request an NCIC 
check and documentation of such person's religious credentials when 
necessary. The revised section specifies that such visits are not 
considered social visits, in accordance with existing Bureau policy on 
visiting regulations (see 28 CFR 540.48), and provides for 
administrative details on the location of such visits.
    New Sec. 548.20 restates provisions contained in former Sec. 548.13 
(a) and (b) on dietary practices, including religious diets. In the 
past, religious diets offered by the Bureau were limited to kosher 
diets and a pilot program offering a common fare menu (i.e., a diet 
designed to meet nutritional standards and the basic requirements of 
religious dietary norms).
    As revised, paragraph (a) of new Sec. 548.20 specifies procedures 
for consideration of requests for a religious diet under a common fare 
menu. References to nutritional standards have been removed because the 
Bureau believes it is unnecessary in this regulation to restate its 
basic policy of providing nutritionally adequate meals. The Bureau 
initially piloted operation of a common fare menu at institutions in 
its South Central Region and gradually expanded operation of the 
program nationwide. Review of the small number of inmate complaints on 
this subject filed under the Administrative Remedy Program has 
demonstrated the benefits and practicability of the common fare menu. 
Documentation requirements for processing a request include a written 
statement from the inmate articulating the religious motivation for 
participating in the common fare program. Paragraph (b) specifies 
procedures for withdrawal or removal 

[[Page 46486]]
from a requested religious diet. The process of reapproving a religious 
diet ordinarily may extend up to thirty days. Repeated withdrawals may 
result in longer waiting periods (up to one year). This delay for 
reinstatement is intended to preserve the integrity and orderly 
operation of the religious diet program and to prevent fraud. Paragraph 
(c) contains provisions for accommodations to be made for an annual 
ceremonial or commemorative meal which specify that such meal is for 
the members of the particular religious group. The discretionary 
provisions contained in former Sec. 548.13(b) on the purchase of food 
to be used for these meals have been removed from the revised 
regulations because the Bureau believes them to be administrative in 
nature. Internal staff guidelines specify that Bureau Food Service 
staff are responsible for procuring such special foods.
    Because implementation of a common fare menu provides wider 
accommodation to the religious needs of inmates and has generally shown 
its benefits and practicability (based upon the small number of 
Administrative Remedy filings), the Bureau finds good cause for 
exempting the provisions of the Administrative Procedure Act (5 U.S.C. 
553) requiring notice of proposed rulemaking, and delay in effective 
date, and is implementing this change as an interim rule. Other 
regulatory changes in this document are administrative in nature or are 
restatements or reorganizations made for the sake of clarity. Members 
of the public may submit comments concerning this rule by writing to 
the previously cited address. These comments will be considered before 
the rule is finalized.
    The Bureau of Prisons has determined that this rule is not a 
significant regulatory action for the purpose of E.O. 12866, and 
accordingly this rule was not reviewed by the Office of Management and 
Budget. After review of the law and regulations, the Director, Bureau 
of Prisons has certified that this rule, for the purpose of the 
Regulatory Flexibility Act (Pub. L. 96-354), does not have a 
significant impact on a substantial number of small entities.

List of Subjects in 28 CFR Part 548

    Prisoners.
Kathleen M. Hawk,
Director, Bureau of Prisons.
    Accordingly, pursuant to the rulemaking authority vested in the 
Attorney General in 5 U.S.C. 552(a) and delegated to the Director, 
Bureau of Prisons in 28 CFR 0.96(p), part 548 in subchapter C of 28 
CFR, chapter V is amended as set forth below.

Subchapter C--Institutional Management

PART 548--RELIGIOUS PROGRAMS

    1. The authority citation for 28 CFR part 548 is revised to read as 
follows:

    Authority: 5 U.S.C. 301; 18 U.S.C. 3621, 3622, 3624, 4001, 4042, 
4081, 4082 (Repealed in part as to offenses committed on or after 
November 1, 1987), 5006-5024 (Repealed October 12, 1984 as to 
offenses committed after that date), 5039; 28 U.S.C. 509, 510; 42 
U.S.C. 1996; 28 CFR 0.95-0.99.

    2. Subpart B, consisting of Secs. 548.10 through 548.15, is revised 
to consist of Secs. 548.10 through 548.20 as follows:

Subpart B--Religious Beliefs and Practices of Committed Offenders

Sec.
548.10  Purpose and scope.
548.11  Definition.
548.12  Chaplains.
548.13  Schedules and facilities.
548.14  Community involvement (volunteers, contractors).
548.15  Equity.
548.16  Inmate religious property.
548.17  Work assignments.
548.18  Observance of religious holy days.
548.19  Pastoral visits.
548.20  Dietary practices.

Subpart B--Religious Beliefs and Practices of Committed Offenders


Sec. 548.10  Purpose and scope.

    (a) The Bureau of Prisons provides inmates of all faith groups with 
reasonable and equitable opportunities to pursue religious beliefs and 
practices, within the constraints of budgetary limitations and 
consistent with the security and orderly running of the institution and 
the Bureau of Prisons.
    (b) When considered necessary for the security or good order of the 
institution, the Warden may limit attendance at or discontinue a 
religious activity. Opportunities for religious activities are open to 
the entire inmate population, without regard to race, color, 
nationality, or ordinarily, creed. The Warden, after consulting with 
the institution chaplain, may limit participation in a particular 
religious activity or practice to the members of that religious group. 
Ordinarily, when the nature of the activity or practice (e.g., 
religious fasts, wearing of headwear, work proscription, ceremonial 
meals) indicates a need for such a limitation, only those inmates whose 
files reflect the pertinent religious preference will be included.
    (c) The Bureau of Prisons does not require an inmate to profess a 
religious belief. An inmate may designate any or no religious 
preference at his/her initial team screening. By notifying the chaplain 
in writing, an inmate may request to change this designation at any 
time, and the change will be effected in a timely fashion.


Sec. 548.11  Definition.

    For purposes of this subpart, the term ``religious activity'' 
includes religious diets, services, ceremonies, and meetings.


Sec. 548.12  Chaplains.

    Institution chaplains are available upon request to provide 
pastoral care and counseling to inmates through group programs and 
individual services. Pastoral care and counseling from representatives 
in the community are available in accordance with the provisions of 
Secs. 548.14 and 548.19.


Sec. 548.13  Schedules and facilities.

    (a) Under the general supervision of the Warden, chaplains shall 
schedule and direct the institution's religious activities.
    (b) The Warden may relieve an inmate from an institution program or 
assignment if a religious activity is also scheduled at that time.
    (c) Institutions shall have space designated for the conduct of 
religious activities.


Sec. 548.14  Community involvement (volunteers, contractors).

    (a) The institution's chaplain may contract with representatives of 
faith groups in the community to provide specific religious services 
which the chaplain cannot personally deliver due to, ordinarily, 
religious prescriptions or ecclesiastical constraints to which the 
chaplain adheres.
    (b) The institution's chaplain may secure the services of 
volunteers to assist inmates in observing their religious beliefs.
    (c) The Warden or the Warden's designee (ordinarily the chaplain) 
may require a recognized representative of the faith group to verify a 
volunteer's or contractor's religious credentials prior to approving 
his or her entry into the institution.


Sec. 548.15  Equity.

    No one may disparage the religious beliefs of an inmate, nor coerce 
or harass an inmate to change religious affiliation. Attendance at all 
religious activities is voluntary and, unless otherwise specifically 
determined by the Warden, open to all.

[[Page 46487]]



Sec. 548.16  Inmate religious property.

    (a) Inmate religious property includes but is not limited to 
rosaries and prayer beads, oils, prayer rugs, phylacteries, medicine 
pouches, and religious medallions. Such items, which become part of an 
inmate's personal property, are subject to normal considerations of 
safety and security. If necessary, their religious significance shall 
be verified by the chaplain prior to the Warden's approval.
    (b) An inmate ordinarily shall be allowed to wear or use personal 
religious items during religious services, ceremonies, and meetings in 
the chapel, unless the Warden determines that the wearing or use of 
such items would threaten institution security, safety, or good order. 
Upon request of the inmate, the Warden may allow the wearing or use of 
certain religious items throughout the institution, consistent with 
considerations of security, safety, or good order. The Warden may 
request the chaplain to obtain direction from representatives of the 
inmate's faith group or other appropriate sources concerning the 
religious significance of the items.
    (c) An inmate who wishes to have religious books, magazines or 
periodicals must comply with the general rules of the institution 
regarding ordering, purchasing, retaining and accumulating personal 
property. Religious literature is permitted in accordance with the 
procedures governing incoming publications. Distribution to inmates of 
religious literature purchased by or donated to the Bureau of Prisons 
is contingent upon the chaplain's granting his or her approval.


Sec. 548.17  Work assignments.

    When the religious tenets of an inmate's faith are violated or 
jeopardized by a particular work assignment, a different work 
assignment ordinarily shall be made after it is requested in writing by 
the inmate, and the specific religious tenets have been verified by the 
chaplain. Maintaining security, safety, and good order in the 
institution are grounds for denial of such request for a different work 
assignment.


Sec. 548.18  Observance of religious holy days.

    Consistent with maintaining security, safety, and good order in the 
institution, the Warden shall endeavor to facilitate the observance of 
important religious holy days which involve special fasts, dietary 
regulations, worship, or work proscription. The inmate must submit a 
written request to the chaplain for time off from work to observe a 
religious holy day. The Warden may request the chaplain to consult with 
community representatives of the inmate's faith group and/or other 
appropriate sources to verify the religious significance of the 
requested observance. The chaplain will work with requesting inmates to 
accommodate a proper observance of the holy day. The Warden will 
ordinarily allow an inmate to take earned vacation days, or to make up 
for missed work, or to change work assignments in order to facilitate 
the observance of the religious holy day.


Sec. 548.19  Pastoral visits.

    If requested by an inmate, the chaplain shall facilitate 
arrangements for pastoral visits by a clergyperson or representative of 
the inmate's faith.
    (a) The chaplain may request an NCIC check and documentation of 
such clergyperson's or faith group representative's credentials.
    (b) Pastoral visits may not be counted as social visits. They will 
ordinarily take place in the visiting room during regular visiting 
hours.


Sec. 548.20  Dietary practices.

    (a) The Bureau provides inmates requesting a religious diet 
reasonable and equitable opportunity to observe their religious dietary 
practice within the constraints of budget limitations and the security 
and orderly running of the institution and the Bureau through a common 
fare menu. The inmate will provide a written statement articulating the 
religious motivation for participation in the common fare program. Any 
approval of a request for religious diets must be documented in writing 
by the chaplain, who will forward a copy of the approval form to the 
food service administrator.
    (b) An inmate who has been approved for a common fare menu must 
notify the chaplain in writing if the inmate wishes to withdraw from 
the religious diet. Approval for an inmate's religious diet may be 
withdrawn by the chaplain if the inmate is documented as being in 
violation of the terms of the religious diet program to which the 
inmate has agreed to in writing. In order to preserve the integrity and 
orderly operation of the religious diet program and to prevent fraud, 
inmates who withdraw (or are removed) may not be immediately 
reestablished back into the program. The process of reapproving a 
religious diet for an inmate who voluntarily withdraws or who is 
removed ordinarily may extend up to thirty days. Repeated withdrawals 
(voluntary or otherwise), however, may result in inmates being 
subjected to a waiting period of up to one year.
    (c) The chaplain may arrange for inmate religious groups to have 
one appropriate ceremonial or commemorative meal each year for their 
members as identified by the religious preference reflected in the 
inmate's file. An inmate may attend one religious ceremonial meal in a 
calendar year.

[FR Doc. 95-21934 Filed 9-5-95; 8:45 am]
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