[Federal Register Volume 61, Number 88 (Monday, May 6, 1996)]
[Notices]
[Pages 20306-20309]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 96-11174]
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UNITED STATES SENTENCING COMMISSION
Amendments to the Sentencing Guidelines for United States Courts
agency: United States Sentencing Commission.
action: Notice of submission to Congress of amendments to the
sentencing guidelines.
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summary: Pursuant to its authority under section 994(p) of title 28,
United States Code, the United States
[[Page 20307]]
Sentencing Commission, on May 1, 1996, submitted to the Congress
amendments to the sentencing guidelines, policy statements, and
official commentary together with reasons for the amendments. Pursuant
to 28 U.S.C. 994(p), the Commission has specified an effective date of
November 1, 1996, for these amendments.
addresses: Comments should be sent to: United States Sentencing
Commission, One Columbus Circle, NE., Suite 2-500, South Lobby,
Washington, DC 20002-8002, Attn: Public Information.
for further information contact: Mike Courlander, Public Information
Specialist, telephone: (202) 273-4590.
supplementary information: The United States Sentencing Commission, an
independent agency in the judicial branch of the U.S. Government, is
empowered by 28 U.S.C. 994(a) to promulgate sentencing guidelines and
policy statements for federal sentencing courts. The statute further
directs the Commission periodically to review and revise guidelines
previously promulgated and authorizes it to submit guideline amendments
to the Congress no later than the first day of May each year. See 28
U.S.C. 994(o), (p). Absent action of Congress to the contrary, the
amendments become effective on the date specified by the Commission
(i.e., November 1, 1996) by operation of law.
Notice of the amendments submitted to the Congress on April 30,
1996, was published in the Federal Register of February 23, 1996 (61 FR
7037) and March 15, 1996 (61 FR 10835). A public hearing on the
proposed amendments was held in Washington, DC, on March 11, 1996.
After review of the hearing testimony and additional public comment,
the Commission promulgated the amendments set forth below, each having
been approved by at least four voting Commissioners.
In connection with its ongoing process of guideline review, the
Commission welcomes comment on any aspect of the sentencing guidelines,
policy statements, and official commentary.
Authority: 28 U.S.C. 994 (a), (o), (p).
Richard P. Conaboy,
Chairman.
Amendments to the Sentencing Guidelines
Pursuant to section 994(p) of title 28, United States Code, the
United States Sentencing Commission hereby submits to the Congress the
following amendments to the sentencing guidelines and the reasons
therefor. As authorized by such section, the Commission specifies an
effective date of November 1, 1996, for these amendments.
Amendments to the Sentencing Guidelines, Policy Statements, and
Official Commentary
1. Amendment: Section 2G2.1(a) is amended by striking ``25'' and
inserting ``27''.
Section 2G2.1(b)(1) is amended to read as follows:
``(1) If the offense involved a victim who had (A) not attained the
age of twelve years, increase by 4 levels; or (B) attained the age of
twelve years but not attained the age of sixteen years, increase by 2
levels.''.
Section 2G2.1(b) is amended by adding at the end the following:
``(3) If a computer was used to solicit participation by or with a
minor in sexually explicit conduct for the purpose of producing
sexually explicit material, increase by 2 levels.''.
The Commentary to Sec. 2G2.1 captioned ``Statutory Provisions'' is
amended by striking ``Sec. 2251 (a), (b), (c)(1)(B)'' and inserting
``Secs. 2251 (a), (b), (c)(1)(B), 2258 (a), (b)''.
Section 2G2.2(a) is amended by striking ``15'' and inserting
``17''.
Section 2G2.2(b) is amended by adding at the end the following:
``(5) If a computer was used for the transmission of the material
or a notice or advertisement of the material, increase by 2 levels.''.
The Commentary to Sec. 2G2.2 captioned ``Statutory Provisions'' is
amended by inserting ``2258 (a), (b)'' after ``2252(a) (1)-(3)''.
The Commentary to Sec. 2G2.2 captioned ``Application Notes'' is
amended by striking Notes 4 and 5; and by amending Notes 1 and 2 to
read as follows:
``1. For purposes of this guideline--
`` `Distribution' includes any act related to distribution for
pecuniary gain, including production, transportation, and possession
with intent to distribute.
`` `Pattern of activity involving the sexual abuse or exploitation
of a minor' means any combination of two or more separate instances of
the sexual abuse or sexual exploitation of a minor by the defendant,
whether or not the abuse or exploitation (A) occurred during the course
of the offense, (B) involved the same or different victims, or (C)
resulted in a conviction for such conduct.
`` `Sexual abuse or exploitation' means conduct constituting
criminal sexual abuse of a minor, sexual exploitation of a minor,
abusive sexual contact of a minor, any similar offense under state law,
or an attempt or conspiracy to commit any of the above offenses.
`Sexual abuse or exploitation' does not include trafficking in material
relating to the sexual abuse or exploitation of a minor.
`` `Sexually explicit conduct' has the meaning set forth in 18
U.S.C. Sec. 2256.
``2. If the defendant engaged in the sexual abuse or exploitation
of a minor at any time (whether or not such abuse or exploitation
occurred during the course of the offense or resulted in a conviction
for such conduct) and subsection (b)(4) does not apply, an upward
departure may be warranted. In addition, and upward departure may be
warranted if the defendant received an enhancement under subsection
(b)(4) but that enhancement does not adequately reflect the seriousness
of the sexual abuse or exploitation involved.
``Prior convictions taken into account under subsection (b)(4) are
also counted for purposes of determining criminal history points
pursuant to Chapter Four, Part A (Criminal History).''.
Section 2G2.4(a) is amended by striking ``13'' and inserting
``15''.
Section 2G2.4(b) is amended by adding at the end the following:
``(3) If the defendant's possession of the material resulted from
the defendant's use of a computer, increase by 2 levels.''.
Reason for Amendment
This amendment implements the congressional directives in section 2
of the Sex Crimes Against Children Prevention Act of 1995, Pub. L. 104-
71, 109 Stat. 774, by providing a two-level enhancement for offenses
involving the sexual exploitation of minors under sections 2251 and
2252 of title 18, United States Code. The two-level enhancement is
provided in the base offense levels under Secs. 2G2.1, 2G2.2, and
2G2.4.
This amendment also implements the directive in section 3 of such
Act by providing a two-level enhancement for offenses under sections
2251(c)(1)(A) and 2252 of title 18, United States Code, if a computer
was used to transmit certain notices or advertisements of material
involving minors engaged in sexually explicit conduct or to transport
or ship that material. The enhancement in Sec. 2G2.2(b)(5) applies to
the transmission of the material or of the notice or advertisement of
the material. The enhancement in Sec. 2G2.4(b)(3) applies only if the
defendant's possession of the material resulted from the defendant's
use of a computer. In addition to these congressionally directed
enhancements, the amendment adds a two-level enhancement under
Sec. 2G2.1(b)(3) if a computer was used to solicit participation in
sexually explicit
[[Page 20308]]
conduct by or with a minor for the purpose of producing sexually
explicit material, in violation of 18 U.S.C. Sec. 2251(c)(1)(B).
This amendment also addresses several issues in respect to
Application Notes 4 and 5 of the Commentary to Sec. 2G2.2. First, the
amendment revises the definition of ``pattern of activity involving the
sexual abuse or exploitation of a minor'' to clarify that ``sexual
abuse or exploitation,'' for purposes of Sec. 2G2.2(b)(4), requires
that the defendant personally had participated in such conduct. The
amendment defines ``sexual abuse or exploitation'' to mean conduct
constituting criminal sexual abuse, sexual exploitation, or abusive
sexual contact and to exclude trafficking in child pornography. These
revisions are consistent with United States v. Chapman, 60 F.3d 894
(1st Cir. 1995) and United States v. Ketcham, No. 95-5002, 1996 WL
141628 (3d Cir. Mar. 29, 1996), both of which held that the defendant's
transportation or distribution of child pornography is not sexual
exploitation within the meaning of the ``pattern of activity''
enhancement in Sec. 2G2.2(b)(4). Second, the amendment clarifies that
the ``pattern of activity'' may include acts of sexual abuse or
exploitation that were not committed during the course of the offense
or that did not result in a conviction. This revision responds in part
to the holding in Chapman, 60 F.3d at 901, that the ``pattern of
activity'' enhancement is inapplicable to past sexual abuse or
exploitation unrelated to the offense of conviction. The amended
language provides that conduct involving the defendant's sexual abuse
or exploitation of a minor may be considered even if that conduct did
not occur as part of the offense of conviction. Accordingly, the
conduct considered for purposes of the ``pattern of activity''
enhancement is broader than the scope of relevant conduct typically
considered under Sec. 1B1.3 (Relevant Conduct). Third, the amendment
revises the departure provision of Application Note 5 to specify that
an upward departure may be warranted if the defendant (1) did not
engage in a ``pattern of activity'' but nevertheless abused a minor at
any time, or (2) engaged in a ``pattern of activity'' but the
enhancement does not adequately reflect the seriousness of the sexual
abuse or exploitation. Fourth, the amendment clarifies that prior
convictions counted as part of the ``pattern of activity'' also may be
counted as part of the defendant's criminal history under Chapter Four,
if those convictions meet the criteria set forth in the relevant
guidelines of that chapter.
The amendment also makes the ``Statutory Provisions'' of the
Commentary to Secs. 2G2.1 and 2G2.2 more comprehensive by adding 18
U.S.C. Sec. 2258 (a) and (b) to the list of provisions covered by those
guidelines.
2. Amendment: Chapter 2, Part G, Subpart 1 is amended by striking
Secs. 2G1.1 and 2G1.2 and inserting the following:
``Sec. 2G1.1. Promoting Prostitution or Prohibited Sexual Conduct
``(a) Base Offense Level: 14
``(b) Specific Offense Characteristics
``(1) If the offense involved the use of physical force, or
coercion by threats or drugs or in any manner, increase by 4 levels.
``(2) If the offense involved a victim who had (A) not attained the
age of twelve years, increase by 9 levels; (B) attained the age of
twelve years but not attained the age of sixteen years, increase by 7
levels; or (C) attained the age of sixteen years but not attained the
age of eighteen years, increase by 5 levels.
``(3) If subsection (b)(2) applies, and (A) the defendant was a
parent, relative, or legal guardian of the victim, or (B) the victim
was otherwise in the custody, care, or supervisory control of the
defendant, increase by 2 levels.
``(c) Cross References
``(1) If the offense involved causing, transporting, permitting, or
offering or seeking by notice or advertisement, a person less than
eighteen years of age to engage in sexually explicit conduct for the
purpose of producing a visual depiction of such conduct, apply
Sec. 2G2.1 (Sexually Exploiting a Minor by Production of Sexually
Explicit Visual or Printed Material; Custodian Permitting Minor to
Engage in Sexually Explicit Conduct; Advertisement for Minors to Engage
in Production).
``(2) If the offense involved criminal sexual abuse, attempted
criminal sexual abuse, or assault with intent to commit criminal sexual
abuse, apply Sec. 2A3.1 (Criminal Sexual Abuse; Attempt or Assault with
the Intent to Commit Criminal Sexual Abuse).
``(3) If the offense did not involve promoting prostitution, and
neither subsection (c)(1) nor (c)(2) is applicable, use the offense
guideline applicable to the underlying prohibited sexual conduct. If no
offense guideline is applicable to the prohibited sexual conduct, apply
Sec. 2X5.1 (Other Offenses).
``(d) Special Instruction
``(1) If the offense involved more than one victim, Chapter Three,
Part D (Multiple Counts) shall be applied as if the promoting of
prostitution or prohibited sexual conduct in respect to each victim had
been contained in a separate count of conviction.
``Commentary
``Statutory Provisions: 8 U.S.C. Sec. 1328; 18 U.S.C. Secs. 2421,
2422, 2423(a).
``Application Notes:
``1. For purposes of this guideline--
`` `Coercion' includes any form of conduct that negates the
voluntariness of the behavior of the victim. Coercion would apply, for
example, where the ability of the victim to appraise or control conduct
was substantially impaired by drugs or alcohol. In the case of an adult
victim, rather than a victim less than eighteen years of age, this
characteristic generally will not apply if the drug or alcohol was
voluntarily taken.
`` `Promoting prostitution or prohibited sexaul conduct' means (A)
transporting a person for the purpose of prostitution or prohibited
sexual conduct, or (B) persuading, inducing, enticing, or coercing a
person to engage in, or travel for the propose of engaging in,
prostitution or prohibited sexual conduct.
`` `Sexually explicit conduct' has the meaning set forth in 18
U.S.C. Sec. 2256.
`` `Victim' means a person transported, persuaded, induced,
enticed, or coerced to engage in, or travel for the purpose of engaging
in, prostitution or prohibited sexual conduct, whether or not the
person consented to the prostitution or prohibited sexual conduct.
``(2). The enactment for physical force, or coercion, anticipates
no bodily injury. If bodily injury results, an upward departure may be
warranted. See Chapter Five, part K (Departures).
``3. For the purposes of Sec. 3B1.1 (Aggravating Role), a victim,
as defined in this guideline, is considered a participant only if that
victim assisted in the promoting of prostitution or prohibited sexual
conduct in respect to another victim.
``4. For the purposes of Chapter Three, Part D (Multiple Counts),
each person transported, persuaded, induced, enticed, or coerced to
engage in, or travel to engage in, prostitution or prohibited sexual
conduct is to be treated as a separate victim. Consequently, multiple
counts involving more than one victim are not to be grouped together
under Sec. 3D1.2 (Groups of Closely-Related Counts). In addition,
subsection (d)(1) directs that if the relevant conduct of an offense of
conviction includes the promoting of prostitution or prohibited sexual
conduct in respect to more than one
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victim, whether specifically cited in the count of conviction or not,
each such victim shall be treated as if contained in a separate count
of conviction.
``5. Subsection (b)(3) is intended to have broad application and
includes offenses involving a victim less than eighteen years of age
entrusted to the defendant, whether temporarily or permanently. For
example, teachers, day care providers, baby-sitters, or other temporary
caretakers are among those who would be subject to this enhancement. In
determining whether to apply this adjustment, the court should look to
the actual relationship that existed between the defendant and the
victim and not simply to the legal status of the defendant-victim
relationship.
``6. If the adjustment in subsection (b)(3) applies, do not apply
Sec. 3B1.3 (Abuse of Position of Trust or Use of Special Skill).
``7. The cross reference in subsection (c)(1) is to be construed
broadly to include all instances where the offense involved employing,
using, persuading, inducing, enticing, coercing, transporting,
permitting, or offering or seeking by notice of advertisement, a person
less than eighteen years of age to engage in sexually explicit conduct
for the purpose of producing any visual depiction of such conduct.
``8. The cross reference at subsection (c)(3) addresses the unusual
case in which the offense did not involve promoting prostitution and
neither subsection (c)(1) nor (c)(2) is applicable. In such case, the
guideline for the underlying prohibited sexual conduct is to be used;
e.g., Sec. 2A3.2 (Criminal Sexual Abuse of Minor (Statutory Rape) or
Attempt to Commit Such Acts) or Sec. 2A3.4 (Abusive Sexual Contact or
Attempt to Commit Abusive Sexual Contact). If three is no offense
guideline for the underlying prohibited sexual conduct, Sec. 2X5.1
(Other Offenses) is to be used.''.
Chapter 1, Part A, Subpart 4(b) is amended in the fourth paragraph
by striking the third sentence.
Section 3D1.2(d) is amended in the third paragraph by striking
``2G1.2,''.
Appendix A is amended--
in the line referenced to 8 U.S.C. Sec. 1328, by striking ``, 2G1.2'';
in the line referenced to 18 U.S.C. Sec. 2421, by striking ``, 2G1.2'';
in the line referenced to 18 U.S.C. Sec. 2422, by striking ``, 2G1.2'';
and
in the line referenced to 18 U.S.C. Sec. 2423(a), by striking ``,
2G1.2'' and inserting ``2G1.1''.
Reason for Amendment
This is a three-part amendment. First, this amendment implements
the congressional directive in section 4 of the Sex Crimes Against
Children Prevention Act of 1995, Pub. L. No. 104-71, 109 Stat. 774, by
providing a three-level enhancement for offenses involving the
transportation of minors with intent to engage in prostitution or other
prohibited sexual conduct under 18 U.S.C. Sec. 2423(a). The three-level
enhancement is provided in the specific offense characteristic in
subsection (b)(2) related to the age of the victim.
Second, this amendment addresses 18 U.S.C. Sec. 2422(b), a new
offense created by section 508 of the Telecommunications Act of 1996,
Pub. L. No. 104-104, 110 Stat. 56. That offense makes it unlawful, in
interstate or foreign commerce, including through the mail, or within
the special maritime or territorial jurisdiction of the United States,
to knowingly persuade, induce, entice, or coerce an individual under
the age of 18 years to engage in prostitution or other prohibited
sexual conduct. The amendment brings this new offense within the scope
of the consolidated, expanded guideline. As revised, the guideline is
broadly applicable to offenses that involve ``promoting prostitution or
prohibited sexual conduct.'' That term is defined to encompass conduct
covered by the new Telecommunications Act offense as well as conduct
previously covered by the guideline; i.e., transporting a person, or
inducing a person to travel, for the purpose of prostitution or other
prohibited sexual conduct.
Third, this amendment consolidates Secs. 2G1.1 (Transportation for
the Purpose of prostitution or Prohibited Sexual Conduct) and 2G1.2
(Transportation of a Minor for the Purpose of Prostitution or
Prohibited Sexual Conduct) in furtherance of the Commission's goal to
simplify the operation of the guidelines. Because the consolidated
guideline covers both offenses involving adult victims and those
involving minors, a two-level increase is provided in the specific
offense characteristic related to the age of the victim to increase the
offense level when a minor is involved. The two-level increase is in
addition to the three-level enhancement directed to be made by the Sex
Crimes Against Children Prevention Act of 1995. In addition, the
consolidated guideline defines the term ``victim'' and incorporates the
cross references of Sec. 2G1.2 into the consolidate guideline. The
amendment also clarifies that the ``Statutory Provisions'' in the
Commentary of the consolidated guideline cover offenses under 18 U.S.C.
Sec. 2423(a (but not Sec. 2423b), which is referenced in Appendix A to
Secs. 2A3.1, 2A3.2, and 2A3.3).
[FR Doc. 96-11174 Filed 5-3-96; 8:45 am]
BILLING CODE 2210-40-M
