Rulemaking is necessary to reorganize the rule, to provide greater accountability in order to prevent fraudulent, unauthorized, or other illegal financial transactions involving inmate trust fund accounts, to limit depositors to an inmate’s trust fund account to those individuals on the inmate’s automated visiting record, to establish criteria for charitable organizations making deposits into an inmate’s trust fund account, to add categories for inmate special withdrawals, and to modify Form DC2-304 to improve its clarity and usability.