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Among other things, the plan seeks to establish more centralized authority over the system and improve living conditions by renovating centers designed for penal detention to make them more appropriate for detainees facing deportation.

The Obama administration is considering a change in the law for the military commissions at the prison at Guantánamo Bay, Cuba, that would clear the way for detainees facing the death penalty to plead guilty without a full trial.

But several constitutional law specialists said Friday that such broad challenges from detainees facing war crimes charges could, at a minimum, tie up the military commissions in years of court battles that might eventually lead back to the Supreme Court.

The announcement came as Khalid Shaikh Mohammed and four other Guantánamo Bay detainees facing death penalty charges before a military tribunal over the Sept. 11 attacks made their first public appearance since October on Monday, sitting quietly in a high-security courtroom at the naval base in Cuba as pretrial hearings resumed.

A month after the commission's visits, immigration officials announced a sweeping plan to establish more centralized authority over the system and to renovate centers designed for penal detention to make them more appropriate for detainees facing deportation, particularly those accused of administrative violations.

Sarah E. Mendelson, a scholar at the Center for Strategic and International Studies who led a study of options for closing Guantánamo, said it would be best if detainees facing prosecution were indicted while still at Guantánamo and then moved into federal pretrial facilities in the United States, which routinely house people accused of murder and other dangerous inmates.

11 detainees face new hurdles.

Such detainees face long delays as they challenge deportation.

Other detainees face a variety of charges, including traffic offenses and identification fraud, or are being held as material witnesses.

Jamie Fellner, the director of the United States programs for Human Rights Watch, said some detainees faced the worst of two worlds.

Mr. Girod said the uncertainty the detainees faced was a major factor in the high rate of attempted suicides and the incidence of clinical depression.