Kevin Norris v. Massachusetts Parole Board.

NOTICE: Summary decisions issued by the Appeals Court pursuant to M.A.C. Rule 23.0, as
appearing in 97 Mass. App. Ct. 1017 (2020) (formerly known as rule 1:28, as amended by 73
Mass. App. Ct. 1001 [2009]), are primarily directed to the parties and, therefore, may not
fully address the facts of the case or the panel's decisional rationale. Moreover, such
decisions are not circulated to the entire court and, therefore, represent only the views
of the panel that decided the case. A summary decision pursuant to rule 23.0 or rule 1:28
issued after February 25, 2008, may be cited for its persuasive value but, because of the
limitations noted above, not as binding precedent. See Chace v. Curran, 71 Mass. App. Ct.
258, 260 n.4 (2008).

COMMONWEALTH OF MASSACHUSETTS

APPEALS COURT

24-P-424

KEVIN NORRIS

vs.

MASSACHUSETTS PAROLE BOARD.

MEMORANDUM AND ORDER PURSUANT TO RULE 23.0

The plaintiff, Kevin Norris, appeals from a judgment for

the defendant, the Massachusetts Parole Board (the board), that

entered after a Superior Court judge ruled in the board's favor

on the parties' cross motions for judgment on the pleadings. As

relevant here, the plaintiff's complaint sought declaratory

relief pursuant to G. L. c. 231A, § 1, alleging that the board's

application of parole conditions restricting Internet and "smart

phone" use, requiring monitoring of Internet and smart phone

use, and imposing sex offender special conditions of parole (SEX

A conditions) violated his rights under the United States

Constitution and the Massachusetts Declaration of Rights. We

vacate the judgment and remand the matter for further

proceedings.
Background.1 Following a jury trial in the Superior Court

in 1992, the plaintiff was convicted of several crimes including

two counts of aggravated rape2 and three counts of armed robbery.

Commonwealth v. Norris, 40 Mass. App. Ct. 1107 (1996)

(unpublished decision pursuant to former rule 1:28, now known as

rule 23.0, affirming convictions on direct appeal). The

plaintiff was sentenced to concurrent terms of from twenty-five

to forty years in State prison on the aggravated rape and armed

robbery convictions, and to concurrent lesser sentences on the

remaining convictions. He is currently classified as a level

one sex offender.

In August 2018, the plaintiff was granted parole. However,

his parole was revoked and he was reincarcerated in 2019 after

he was found in possession of an unauthorized smart phone. See

Commonwealth vs. Norris, Mass. App. Ct., No. 20-P-583, slip op.

at 2 (June 17, 2020). On August 31, 2020, the plaintiff was

reparoled and released into the community.

1 As the case comes before us on the parties' cross motions
for judgment on the pleadings, we recite the facts drawn from
the pleadings. See Mass. R. Civ. P. 12 (c), 365 Mass. 754
(1974); Robinhood Fin. LLC v. Secretary of the Commonwealth, 492
Mass. 696, 698 n.4 (2023); Mahabir v. Crocker, 104 Mass. App.
Ct. 242, 245 n.7 (2024).

2 Although the facts herein are drawn from the parties'
pleadings, we note that the docket of the 1992 case states that
the plaintiff was convicted of three (rather than two) counts of
aggravated rape.

2
The plaintiff's parole conditions included complying with

the SEX A conditions; obeying local, State, and Federal laws;

and conducting himself "in the manner of a responsible citizen."

The SEX A conditions included not using the Internet without

permission and submitting to an examination and search of any

electronic devices to ensure they were not being used in

violation of the plaintiff's supervision or treatment plans. In

October 2020, January 2021, and March 2021, the board modified

the plaintiff's parole conditions, including those implicated

under the SEX A conditions, to allow (1) Internet access for

work purposes; (2) use of a smart phone for work, legal

research, counseling, banking, religious services, and listening

to music; and (3) use of the plaintiff's computer for work

purposes. The plaintiff's parole conditions still required

monitoring of his smart phone and Internet activity.

In April 2021, the board sent a notice of preliminary

hearing for possible revocation of parole to the plaintiff based

on alleged parole violations. Following a final parole

revocation hearing, a board panel affirmed the recommendation of

revocation of parole and revoked the plaintiff's parole based on

violations including unauthorized use of the Internet on his

smart phone, in violation of the SEX A conditions; looking at

nude photographs of young women on his smart phone, in violation

3
of the SEX A conditions; and sending a threatening text message.3

Consequently, the plaintiff returned to prison.

The plaintiff filed the complaint from which this appeal

arises in November 2021. As relevant here, the complaint

alleges a claim for declaratory relief under G. L. c. 231A, § 1.

That claim specifically alleges that the board's application of

parole conditions restricting Internet and smart phone use,

monitoring Internet and smart phone use, and imposing the SEX A

conditions violated his constitutional rights.4

The plaintiff asserted that he "was subject to general

conditions of parole" along with conditions "deemed appropriate

for '[o]ffenders classified as [l]evel [one] by the Sex Offender

Registry Board' (colloquially referred to as 'SEX A'

conditions)." As to the declaratory judgment count, the

plaintiff claimed that "[t]he parole conditions that restricted

[the plaintiff's] [I]nternet and smart[ ]phone usage were not

reasonably related to the goals of his parole and were imposed

in violation of the United States Constitution and the

Massachusetts Declaration of Rights"; "[t]he monitoring of [the

3 The plaintiff's hearing panel appeal was denied on July
16, 2021. His appeal to the full board was denied on June 2,
2022.

4 The plaintiff also brought a certiorari claim, pursuant to
G. L. c. 249, § 4, and a claim related to alleged violations of
the Americans with Disabilities Act, 42 U.S.C. § 12101 et seq.

4
plaintiff's] [I]nternet and smart[ ]phone usage constituted an

unreasonable search and a violation of privacy rights in

violation of the United States Constitution and the

Massachusetts Declaration of Rights"; and "[t]he retroactive

application of the [b]oard's [SEX A] conditions of parole to

[the plaintiff] was done in violation of the United States

Constitution and the Massachusetts Declaration of Rights."

The plaintiff attached as an exhibit to his complaint his

August 2020 parole conditions, which noted Massachusetts "Parole

Board Policy 120 PAR 360 Special Conditions: Any parolee with a

prior conviction for a sex offense . . . shall, in addition to

any general or special condition, automatically be subject to

the grouping of conditions known as the Sex Offender Conditions

('SEX[ ]A') . . . ." He also attached the SEX A conditions

form, which listed these conditions. In the form, the plaintiff

had written his initials next to each of the SEX A conditions

for a level one sex offender.

Following limited discovery, both parties moved for

judgment on the pleadings. However, those motions were resolved

when the board agreed to provide the plaintiff with a new final

parole revocation hearing on the plaintiff's claim for

5
certiorari review, pursuant to G. L. c. 249, § 4.5 The

plaintiff's new parole revocation hearing took place in April

2023. The board affirmed the plaintiff's revocation of parole,

but released the plaintiff on parole in May 2023 with conditions

including the SEX A conditions, allowing particular Internet

access6 and requiring monitoring of the plaintiff's Internet

access. A special parole condition was also imposed on the

plaintiff that prohibited him from possessing a smart phone, and

permitting him to possess only a "[f]lip phone or equivalent"

(thus, he was not subject to required monitoring of his smart

phone activity under the SEX A conditions).

The plaintiff again moved for judgment on the pleadings.7

In his motion, the plaintiff referenced the conditions imposed

after his new final revocation hearing, including the SEX A

conditions. The board filed a cross motion for judgment on the

pleadings. In his reply to the board's cross motion, the

5 In remanding the case for the new final parole revocation
hearing, the judge stated that the court "need not dispose of
the plaintiff's other claims at [that] time."

6 As detailed by the board, the plaintiff could use the
Internet for banking, accessing Waze "or any other similar GPS
app," listening to music "with discretion (no music videos),"
and attending online meetings allowed by his parole officer.

7 The motion itself is dated July 10, 2023, but seems to
have been docketed on September 1, 2023.

6
plaintiff stated that the SEX A conditions "are uniformly

imposed upon all parolees who have a sex offense conviction."

The motion judge allowed the board's cross motion for

judgment on the pleadings and denied the plaintiff's motion.8

The judge ruled that, as to imposition of the SEX A conditions,

"declaratory judgment is not the appropriate remedy as [the

plaintiff's claim] challenges the validity of the board's

individual adjudication in [the plaintiff's] case and not an

unconstitutional practice or procedure 'consistently repeated'

by the board."9 As to the argument that the board's imposition

8 As to the certiorari claim, pursuant to G. L. c. 249, § 4,
the judge dismissed the claim due to the new final revocation
hearing, stating that the claim was moot. On appeal, the
plaintiff does not raise a separate argument as to that claim.
While we "need not pass upon questions or issues not argued in
the brief," Mass. R. A. P. 16 (a) (9) (A), as appearing in 481
Mass. 1628 (2019), we note that it seems that so much of the
complaint as sought certiorari relief would be time barred, see
G. L. c. 249, § 4 ("Such action shall be commenced within sixty
days next after the proceeding complained of"). The judge did
not state that the declaratory judgment claim was moot. At the
hearing on the cross motions for judgment on the pleadings, the
plaintiff moved to dismiss his claim related to the Americans
with Disabilities Act (count 3), which was allowed.

9 The judge also stated that it was not clear that the
plaintiff had exhausted administrative remedies with respect to
the subject parole conditions. See G. L. c. 231A, § 3 ("The
failure to exhaust administrative relief prior to bringing an
action under section one shall not bar the bringing of such
action if the petition for declaratory relief is accompanied by
an affidavit stating that the practice or procedure set forth
pursuant to the provisions of section two is known to exist by
the agency or official therein described and that reliance on
administrative relief would be futile"); Doe v. Massachusetts
Parole Bd., 82 Mass. App. Ct. 851, 862 (2012) (discussing

7
of the SEX A conditions extended beyond the plaintiff's case to

all sex offenders, the judge concluded that the plaintiff's

complaint did not raise such a challenge, as the plaintiff's

allegations regarding the constitutionality of the Internet

monitoring and use restrictions, and whether those restrictions

were reasonably related to the goals of parole, pertained only

to the plaintiff. As to the merits of the arguments, the judge

stated that "[e]ven if [the plaintiff] had pled such an

obligation to exhaust and declining to consider constitutional
claim challenging parole condition where plaintiff did not
request relief from applicable condition). But see, e.g.,
Suburban Home Health Care, Inc. v. Executive Office of Health &
Human Servs., Office of Medicaid, 488 Mass. 347, 352–353 (2021)
(exception to general rule requiring exhaustion of
administrative remedies of case presenting legal question of
wide public significance). On appeal, though the board
acknowledges that the plaintiff requested to modify his parole
conditions before his parole revocation in 2021, that the
constitutional issues now asserted were raised at the 2021
parole revocation hearing, and that the plaintiff's petition to
modify parole conditions was pending at the time of the board's
2023 cross motion for judgment on the pleadings, the board
maintains that the plaintiff failed to exhaust administrative
remedies as to his 2023 reparole conditions. As we note below,
at the time of the board's 2023 cross-motion for judgment on the
pleadings, the plaintiff was subject to several of the same
parole conditions he challenged in his 2021 complaint and had
seemingly requested that the board amend. See note 11, infra.
Indeed, the plaintiff seems to have consistently raised the
constitutional issues presented in his complaint with the board.
Further, the board does not state an additional procedure the
plaintiff should have followed to exhaust his administrative
remedies. In light of the fact that the plaintiff raised his
challenges with the board and has raised a question of law
regarding a general practice with significance beyond this case,
see Suburban Home Health Care, Inc., supra, we reach the merits
of his appeal.

8
allegation, the record before [the] court contains no evidence

of a practice or procedure, consistently repeated, that violates

the Constitution or Declaration of Rights."10 Judgment entered,

affirming the board's imposition of parole conditions on the

plaintiff. The plaintiff appeals.

Discussion. On appeal, the plaintiff argues that the judge

erred in ruling against him because his claim for declaratory

relief under G. L. c. 231A appropriately challenged the

constitutionality of his contested parole conditions. He also

argues that the conditions violated his State and Federal

constitutional rights.

We review de novo the judge's order allowing a motion for

judgment on the pleadings. Sullivan v. Superintendent,

Massachusetts Correctional Inst., Shirley, 101 Mass. App. Ct.

766, 775 (2022).11

10The judge also concluded that the imposition of the SEX A
conditions did not create a significant risk of prolonging the
plaintiff's incarceration, and thus the imposition did not
constitute an ex post facto violation. The plaintiff does not
raise this issue on appeal.

11The board argues that we should affirm the judgment in
its favor because, particularly without an amended or new
complaint, any ruling regarding the constitutionality of the
parole conditions would be moot since when the plaintiff's
parole was revoked and he was reincarcerated in 2021, and when
he was reparoled with conditions in 2023 following a new final
parole revocation hearing, "he was no longer subject to the 2021
parole conditions, set in 2020 and modified in 2021," challenged
in the November 2021 complaint. We disagree. We note that when
the plaintiff was reparoled, he was again subject to the SEX A

9
To bring a request for declaratory judgment pursuant to

G. L. c. 231A, regarding practices or procedures, "a plaintiff

must plead a particular constitutional violation and demonstrate

that such a violation extends beyond the plaintiff's individual

case and is 'consistently repeated' by the administrative

conditions that restricted his Internet use and required
monitoring of his Internet activity. Cf. Doe v. Massachusetts
Parole Bd., 82 Mass. App. Ct. 851, 853-854 & nn.4, 6 (2012)
(where plaintiff was reclassified as level one sex offender and
parole conditions were modified while appeal was pending, appeal
was moot with respect to level two parole conditions that no
longer applied, but not as to those that remained relevant on
appeal). The board acknowledges that as to the plaintiff's 2023
reparole, the plaintiff

"is again subject to a variety of parole conditions which,
like the former ones, restrict his [I]nternet use to
specific purposes and require monitoring of his [I]nternet
activity. Thus, the general questions raised by [the
plaintiff] -- whether a parole condition that restricts
[the plaintiff's] [I]nternet use violates the First
Amendment and whether a parole condition that monitors [the
plaintiff's] [I]nternet activity constitutes an
unreasonable search and a violation of privacy rights may
occur again. Indeed, they have."

In any event, the plaintiff's claim is not moot due to the
stigma and collateral consequences of being found to violate
parole and having parole revoked. See Blake v. Massachusetts
Parole Bd., 369 Mass. 701, 704 (1976) ("[Parole or probation]
revocations could have future consequences serious enough to
warrant judicial attention to challenges to their legality even
though custody pursuant to the revocation had terminated. A
parole revocation in itself implies a failure of the parolee to
satisfy the obligations of conditional liberty"). Cf.
Commonwealth v. Bruno-O'Leary, 94 Mass. App. Ct. 44, 44 n.1
(2018) (though defendant had served sentence, appeal not moot
because "revocation of probation may have collateral
consequences"). Accordingly, as the matter is not moot, we
address the sufficiency of the pleadings.

10
agency" (emphasis added). Grady v. Commissioner of Correction,

83 Mass. App. Ct. 126, 137 n.9. (2013).12 See Frawley v. Police

Comm'r of Cambridge, 473 Mass. 716, 725 (2016), quoting Nelson

v. Commissioner of Correction, 390 Mass. 379, 388 n.12 (1983)

(complaint for declaratory relief is appropriate way of testing

propriety of practices involving violations of rights that are

"consistent and repeated in nature"). See also Diatchenko v.

District Attorney for the Suffolk Dist., 471 Mass. 12, 30-31

(2015).

Here, the plaintiff's complaint pleaded adequate facts to

support a claim for declaratory relief. See Grady, 83 Mass.

App. Ct. at 135-137. The declaratory judgment count of the

complaint alleged that the parole conditions that restricted the

plaintiff's use of his smart phone and the Internet, required

the monitoring of such use, and applied the SEX A conditions to

the plaintiff violated constitutional rights. The complaint

further referred to exhibits attached to it, including an

exhibit that detailed the plaintiff's parole conditions. See

12As the plaintiff was not challenging an administrative
regulation, but a practice or procedure, he was required to show
that a constitutional violation "has been consistently
repeated." G. L. c. 231A, § 2. Contrast Holden v. Division of
Water Pollution Control, 6 Mass. App. Ct. 423, 428 (1978)
(interpretation of statute under first sentence of G. L.
c. 231A, § 2, rather than practice or procedure under second
sentence of G. L. c. 231A, § 2, does not require plaintiff to
show violation has been consistently repeated).

11
Robinhood Fin. LLC v. Secretary of Commonwealth, 492 Mass. 696,

707 (2023) (in reviewing motion for judgment on pleadings, court

can rely on exhibits attached to complaint). The parole

conditions included a SEX A conditions form, with each listed

condition initialed by the plaintiff. The plaintiff's parole

conditions also referenced Massachusetts Parole Board's special

conditions policy, 120 PAR § 360, stating, "Any parolee with a

prior conviction for a sex offense . . . shall . . .

automatically be subject to the grouping of conditions known as

the Sex Offender Conditions ('SEX[ ]A') . . ." (emphasis added).

From the group of conditions being labeled with its own

name, the existence of form conditions, and the existence of a

policy stating who was "automatically" subject to them, it is

reasonable to infer that the SEX A conditions were imposed often

enough to be a common, repeating practice. Cf. Commonwealth v.

Marques, 84 Mass. App. Ct. 203, 205-207 & n.9 (2013) (where only

evidence of content of immigration warnings defendant received

was plea judge's signed inadequate certification on outdated

"green sheet," court accepted form as record of what occurred

and that plea judge gave inadequate immigration warnings).

Thus, the complaint made allegations that went beyond the

plaintiff's individual case.

Indeed, the board does not claim that imposing the

contested conditions was not in accord with prevailing practice.

12
Rather the board argues primarily that the plaintiff's complaint

lacked sufficient facts to raise a request for declaratory

relief. See Kenney v. Commissioner of Correction, 393 Mass. 28,

31 n.6 (1984) (assuming alleged violation was consistently

repeated from defendants' assertion of authority to take such

action against any inmate); Henderson v. Commissioners of

Barnstable County, 49 Mass. App. Ct. 455, 458 & nn.10-11 (2000)

(same).

We recognize that declaratory judgment provisions are "to

be liberally construed and administered." G. L. c. 231A, § 9.

We also recognize that inferences drawn from pleadings are to be

"construed as to do substantial justice." Mass. R. Civ. P.

8 (f), 365 Mass. 749 (1974). See generally Lichoulas v. Lowell,

78 Mass. App. Ct. 271, 275 (2010) ("A complaint is sufficient

against a motion to dismiss if it appears that the plaintiff may

be entitled to any form of relief, even though . . . the theory

on which [the plaintiff] seems to rely may not be appropriate"

[citation omitted]).

This complaint and its attached exhibits were sufficient to

demonstrate "an ongoing, repeated violation of . . .

constitutional rights." Grady, 83 Mass. App. Ct. at 136. See

Haas v. Commissioner of Correction, 103 Mass. App. Ct. 1, 7

(2023) (plaintiff properly pursued declaratory relief where

alleging unlawful standard operating procedure was "consistently

13
and repeatedly relied upon" to deny inmates' requests). The

allegations provided an appropriate basis for declaratory

relief. See Grady, supra at 135-136 & n.9. We express no view

on the likelihood of success of the plaintiff's claim and

decline to reach the merits.13 Cf. Heck v. Commonwealth, 397

Mass. 336, 339 (1986) (noting preference to pass on

constitutional issues where there is not fully developed trial

record). We hold only that the complaint was prematurely

dismissed.

Conclusion. The judgment affirming the imposition of the

parole conditions on the plaintiff is vacated, and the case is

remanded to the Superior Court for further proceedings

consistent with this memorandum and order.

So ordered.

By the Court (Vuono, Henry &
Wood, JJ.14),

Clerk

Entered: September 12, 2025.

13It is our understanding, as acknowledged by the board,
that the plaintiff is not precluded from filing an amended
complaint.

14 The panelists are listed in order of seniority.

14