[Federal Register Volume 59, Number 124 (Wednesday, June 29, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-15728]


[[Page Unknown]]

[Federal Register: June 29, 1994]


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DEPARTMENT OF JUSTICE

28 CFR Part 9

[AG Order No. 1896-94]

 

Revision of Regulations Governing the Remission or Mitigation of 
Civil and Criminal Forfeitures

AGENCY: Department of Justice.

ACTION: Proposed rule.

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SUMMARY: This document proposes to amend and adopts procedures that 
govern the processing of petitions for remission and mitigation of 
forfeitures by the Criminal Division, the Drug Enforcement 
Administration, the Federal Bureau of Investigation, the Immigration 
and Naturalization Service, and the United States Marshals Service of 
the Department of Justice. The Department of Justice proposed the 
following procedures in an effort to ameliorate the harsh results in 
individual forfeiture cases and to provide relief for innocent persons 
whose property is used by others for criminal purpose.

DATES: Comments must be submitted on or before July 29, 1994.

ADDRESSES: All comments concerning this proposed rule should be 
addressed to the Assistant Director for Policy and Operations, 
Executive Office for Asset Forfeiture, Office of the Deputy Attorney 
General, Department of Justice, 901 E St., NW., Suite 832, Washington, 
DC 20530.

FOR FURTHER INFORMATION CONTACT:
Laurie J. Sartorio, Assistant Director for Policy and Operations, 
Executive Office for Asset Forfeiture, Office of the Deputy Attorney 
General, Department of Justice, Washington, DC 20530, telephone (202) 
616-8000. This is not a toll-free number.

SUPPLEMENTARY INFORMATION:

Background

    In 1987, the Attorney General, recognizing the importance of 
petitions for remission or mitigation of forfeiture as a means of 
ameliorating the harsh results in certain forfeiture cases, amended 
Title 28 of the CFR, Part 9, which provides uniform treatment of 
remission and mitigation petitions by the Department's Criminal 
Division in judicial forfeiture cases, and by the Drug Enforcement 
Administration, the Federal Bureau of Investigation, the Immigration 
and Naturalization Service, and the United States Marshals Service in 
administrative forfeiture cases. A grant of a petition for remission 
provides for the return of forfeited property or the return of an 
appropriate property interest to individuals who can show that they 
acted without willful negligence. Mitigation provides for the partial 
or total relief from forfeiture through the return of some or all of 
the property and/or the imposition of monetary or other conditions.
    Due to the growth of asset forfeiture cases and the growing number 
of federal agencies engaged in the forfeiture process, the Attorney 
General proposes the following procedures that will apply to the 
processing of petitions by the Criminal Division, the Drug Enforcement 
Administration, the Federal Bureau of Investigation, the Immigration 
and Naturalization Service, and the United States Marshals Service of 
the Department of Justice. This effort seeks to establish a 
comprehensive set of procedures, understandable by individuals and 
their attorneys, that will govern the handling of processing of 
petitions for remission or mitigation in the overwhelming majority of 
federal forfeiture cases.
    In addition to establishing a comprehensive petition process, the 
proposed rules seek to: (1) Clarify provisions in existing rules; (2) 
distinguish between the bases for remission of forfeiture and the 
mitigation of forfeiture; (3) address inadequacies that have been 
detected in current rules due, in part, to the increased use of 
forfeiture by federal law enforcement agencies; (4) promote consistent 
and predictable decisions on petitions; and (5) recognize the interests 
of victims of crime in forfeited monies and other properties.
    The proposed procedures in section 9.8 permit remission and 
mitigation to victims of crime when the property was forfeited under a 
statute that specifically provides for the restoration or remission of 
forfeited property to victims. An example of such a statute is 18 
U.S.C. 1963(g)(1), which authorizes the Attorney General to ``restore 
forfeited property to victims of a violation of this chapter.'' Some 
statutes, however, do not so provide, and instead adopt the provisions 
of the customs laws relating to remission. For example, 21 U.S.C. 
881(d) provides that ``[t]he provisions of law relating to the seizure, 
summary and judicial forfeiture, and condemnation of property for 
violation of customs laws: * * *  the remission or mitigation of such 
forfeitures; and the compromise of claims shall apply to seizures and 
forfeitures incurred * * *  under any of the provisions of this 
subchapter.'' The proposed rule does not permit remission or mitigation 
to victims where the forfeiture occurs under statutes that adopt the 
provisions of the customs laws without including language specifically 
authorizing restoration or remission to victims of crimes (e.g., 
forfeitures pursuant to the civil money laundering statute, 18 U.S.C. 
981(a)(1)(A)). In such cases, the remission process is governed solely 
by the customs laws (specifically, 19 U.S.C. 1613 and 1618), which does 
not authorize remission to those who lack a legally cognizable interest 
in the property. However, the proposed rules will permit remission to 
victims should the applicable forfeiture statutes be amended to provide 
specifically for the restoration or remission of forfeited properties 
to victims. At the present time, most of the criminal forfeiture 
statutes, as well as 18 U.S.C. 981(a)(1)(c), a civil forfeiture 
statute, specifically, provide for restoration or remission to victims 
and, therefore, are covered by Sec. 9.8.
    These regulations supersede the provisions of 21 CFR 1316.79 and 
1316.80, which contain remission and mitigation procedures for property 
seized for narcotics violations. The provisions of 8 CFR 274.13 through 
274.19 and 28 CFR 8.10, which concern nondrug related forfeitures, are 
also superseded by these regulations.
    In accordance with 5 U.S.C. 605(b), the Attorney General certifies 
that this rule does not have a significant adverse economic impact on a 
substantial number of small entities. This rules does not have 
federalism implications warranting the preparation of a federalism 
assessment in accordance with section 6 of Executive Order 12612. This 
rule is not a significant regulatory action within the meaning of 
Executive Order 12866 and has not been reviewed by the Office of 
Management and Budget pursuant to that order.

List of Subjects in 28 CFR Part 9

    Administrative practice and procedure, Crime, Seizures, and 
forfeitures.

    Accordingly, Title 28 of the Code of Federal Regulations is 
proposed to be amended by revising Part 9 to read as follows:

PART 9--REMISSION OR MITIGATION OF ADMINISTRATIVE, CIVIL, AND 
CRIMINAL FORFEITURES

Sec.
9.1  Authority, purpose, and scope.
9.2  Definitions.
9.3  Petitions in administrative forfeiture cases.
9.4  Petitions in judicial forfeiture cases.
9.5  Criteria governing administrative and judicial remission and 
mitigation.
9.6  Special rules for specific petitioners.
9.7  Terms and conditions of remission and mitigation.
9.8  Provisions applicable to victims.
9.9  Miscellaneous provisions.

    Authority: 28 U.S.C. 509, 510, 515-518, 524; 8 U.S.C. 1324; 15 
U.S.C. 1177; 17 U.S.C. 509; 18 U.S.C. 512, 981, 982, 1467, 1955, 
1963, 2253, 2254, 2513; 19 U.S.C. 1613, 1618; 21 U.S.C. 853, 881; 22 
U.S.C. 401.


Sec. 9.1  Authority, purpose, and scope.

    (a) Purpose of regulations. This Part sets forth the procedures for 
agency officials to follow when considering remission or mitigation of 
administrative forfeitures under the jurisdiction of the agency, and 
civil judicial and criminal judicial forfeitures under the jurisdiction 
of the Criminal Division. The purpose of these regulations is to 
provide a basis for ameliorating the effects of forfeiture through the 
partial or total remission of forfeiture for individuals who have an 
interest in the forfeited property but who did not participate in, or 
have knowledge of, the conduct that resulted in the property being 
subject to forfeiture and, where required, took all reasonable steps 
under the circumstances to ensure that such property would not be used, 
acquired, or disposed of contrary to law. Additionally, these 
regulations provide for partial or total mitigation of the forfeiture 
and imposition of alternative conditions in appropriate circumstances.
    (b) Authority to grant remission and mitigation. (1) Remission and 
mitigation functions in administrative forfeitures are performed by the 
agency seizing the property. Within the Federal Bureau of 
Investigation, authority to grant remission and mitigation is delegated 
to the Forfeiture Counsel, who is the Unit Chief, Legal Forfeiture 
Unit, Legal Counsel Division; within the Drug Enforcement 
Administration, authority to grant remission and mitigation is 
delegated to the Forfeiture Counsel, Office of Chief Counsel; and 
within the Immigration and Naturalization Service, authority to grant 
remission and mitigation is delegated to the Associate Commissioner for 
Enforcement.
    (2) Remission and mitigation functions in judicial cases are 
performed by the Criminal Division of the Department of Justice. Within 
the Criminal Division, authority to grant remission and mitigation is 
delegated to the Director, Asset Forfeiture Office, Criminal Division.
    (3) The powers and responsibilities delegated by these regulations 
may be redelegated to attorneys or managers working under the 
supervision of the designated officials.
    (c) The time periods and internal requirements established herein 
are designed to guide the orderly administration of the remission and 
mitigation process and are not intended to create rights or 
entitlements in favor of individuals seeking remission or mitigation.


Sec. 9.2  Definitions.

    As used in this Part:
    (a) The term administrative forfeiture means the process by which 
property may be forfeited by an investigative agency rather than 
through judicial proceedings.
    (b) The term appraised value means the estimated market value of an 
asset at the time and place of seizure if such or similar property was 
freely offered for sale between a willing seller and a willing buyer.
    (c) The term Assets Forfeiture Fund means the Department of Justice 
Assets Forfeiture Fund or Department of the Treasury Assets Forfeiture 
Fund, depending upon the identity of the seizing agency.
    (d) The term  Attorney General means the Attorney General of the 
United States or his or her designee.
    (e) The term beneficial owner means a person with actual use of, as 
well as an interest in, the property subject to forfeiture.
    (f) The term Director, Asset Forfeiture Office, and Director, refer 
to the Director of the Asset Forfeiture Office, Criminal Division, 
United States Department of Justice.
    (g) The term general creditor means one whose claim or debt is not 
secured by a specific right to obtain satisfaction against the 
particular property subject to forfeiture.
    (h) The term judgment creditor means one who has obtained a 
judgment against the debtor but has not yet received full satisfaction 
of the judgment.
    (i) The term judicial forfeiture means either a civil or a criminal 
proceeding in a United States District Court that may result in a final 
judgment and order of forfeiture.
    (j) The term lienholder means a creditor whose claim or debt is 
secured by a specific right to obtain satisfaction against the 
particular property subject to forfeiture. A lien creditor qualifies as 
a lienholder if the lien:
    (1) Was established by operation of law or contract;
    (2) Was created as a result of an exchange of money, goods, or 
services; and
    (3) Is perfected against the specific property forfeited for which 
remission or mitigation is sought (e.g., a real estate mortgage; a 
mechanic's lien).
    (k) The term net equity means the amount of a lienholder's monetary 
interest in property subject to forfeiture. Net equity shall be 
computed by determining the amount of unpaid principal and unpaid 
interest at the time of seizure, and by adding to that sum unpaid 
interest calculated from the date of seizure through the last full 
month prior to the date of the decision on the petition. Where a rate 
of interest is set forth in a security agreement, the rate of interest 
to be used in this computation will be the annual percentage rate so 
specified in the security agreement that is the basis of the 
lienholder's interest. In this computation, however, there shall be no 
allowances for attorney's fees, accelerated or enhanced interest 
charges, amounts set by contract as damages, unearned extended warranty 
fees, insurance, service contract charges incurred after the date of 
seizure, allowances for dealer's reserve, or any other similar charges.
    (l) The term owner means the person in whom primary title is vested 
or whose interest is manifested by the actual and beneficial use of the 
property, even though the title is vested in another. A victim of an 
offense, as defined in Sec. 9.2(v), may also be an owner if he or she 
has a present legally cognizable ownership interest in the property 
forfeited. A nominal owner of property will not be treated as its true 
owner if he or she is not its beneficial owner. The mere existence of a 
community property interest without proof of financial contribution to 
the purchase of the property will not be deemed sufficient interest to 
support a petition.
    (m) The term person means an individual, partnership, corporation, 
joint business enterprise, estate, or other legal entity capable of 
owning property.
    (n) The term petition means a petition for remission or mitigation 
of forfeiture under these regulations. This definition includes a 
petition for restoration of the proceeds of sale of forfeited property 
and a petition for the value of forfeited property placed into official 
use.
    (o) The term petitioner means the person applying for remission, 
mitigation, restoration of the proceeds of sale, or for the appraised 
value of forfeited property, under these regulations. A petitioner may 
be an owner as defined in Sec. 9.2(l), a lienholder as defined in 
Sec. 9.2(j), or a victim as defined in Sec. 9.2(v), subject to the 
limitations of Sec. 9.8.
    (p) The term property means real or personal property of any kind 
of capable of being owned or possessed.
    (q) The term record means a series of arrests for related crimes, 
unless the arrestee was acquitted or the charges were dismissed for 
lack of evidence; a conviction for a related crime or completion of 
sentence within ten years of the acquisition of the property subject to 
forfeiture; or two convictions for a related crime at any time in the 
past.
    (r) The term related crime as used in Sec. 9.2(q) and Sec. 9.6(e) 
means any crime similar in nature to that which gives rise to the 
seizure of property for forfeiture. For example, where property is 
seized for a violation of the federal laws relating to drugs, a related 
crime would be any offense involving a violation of the federal laws 
relating to drugs or the laws of any state or political subdivision 
thereof relating to drugs.
    (s) The term related offense as used in Sec. 9.8 means:
    (1) Any predicate offense charged in a Federal Racketeer Influenced 
and Corrupt Organizations Act (RICO) count for which forfeiture was 
ordered; or
    (2) An offense committed as part of the same scheme or design, or 
pursuant to the same conspiracy, as was involved in the offense for 
which forfeiture was ordered.
    (t) The term Ruling Official means any official to whom decision 
making authority has been delegated pursuant to Sec. 9.1(b).
    (u) The term seizing agency means the federal agency that seized 
the property or adopted the seizure of another agency for federal 
forfeiture.
    (v) The term victim means a person who has incurred a pecuniary 
loss as a direct result of the commission of the offense underlying a 
forfeiture. A drug user is not considered a victim of a drug 
trafficking offense under this definition. A victim does not include 
one who acquires a right to sue the perpetrator of the criminal offense 
for any loss by assignment, subrogation, inheritance, or otherwise from 
the actual victim, unless that person has acquired an actual ownership 
interest in the forfeited property.
    (w) The term violater means the person whose use or acquisition of 
the property in violation of the law subjected such property to seizure 
for forfeiture.


Sec. 9.3  Petitions in administrative forfeiture cases.

    (a) Notice of seizure. The notice of seizure and intent to forfeit 
the property shall advise any persons who may have a present ownership 
interest in the property to submit their petitions for remission or 
mitigation within thirty (30) days of the date they receive the notice 
in order to facilitate processing. Petitions shall be considered any 
time after notice until the forfeited property is placed into official 
use, sold, or otherwise disposed of according to law, except in cases 
involving petitions to restore the proceeds from the sale of forfeited 
property. A notice of seizure shall include the title of the seizing 
agency, the Ruling Official, the mailing and street address of the 
official to whom petitions should be sent, and an asset identifier 
number.
    (b) Persons who may file. A petition for remission or mitigation 
must be filed by a petitioner as defined in Sec. 9.2(o) or as 
prescribed in Secs. 9.9(g) and (h).
    (c) Contents of petition. (1) All petitions must include the 
following information in clear and concise terms:
    (i) The name, address, and social security or other taxpayer 
identification number of the person claiming an interest in the seized 
property who is seeking remission or mitigation;
    (ii) The name of the seizing agency, the asset identifier number, 
and the date and place of seizure;
    (iii) A complete description of the property, including make, 
model, and serial numbers, if any; and
    (iv) A description of the petitioner's interest in the property as 
owner, lienholder, or otherwise, supported by original or certified 
bills of sale, contracts, deeds, mortgages, or other documentary 
evidence.
    (2) Any factual recitation or documentation of any type in a 
petition must be supported by a sworn affidavit.
    (d) Releases. In addition to the contents of the petition for 
remission or mitigation set forth in Sec. 9.3(c), upon request, the 
petitioner shall also furnish the agency with an instrument executed by 
the titled or registered owner and any other known claimant of an 
interest in the property releasing interest in such property.
    (e) Filing petition with agency. (1) A petition for remission or 
mitigation subject to administrative forfeiture shall be addressed to 
the appropriate federal agency as follows:

(i) Drug Enforcement Administration, Office of Chief Counsel, Street 
Address: 700 Army Navy Drive, Arlington, VA 22202, Mailing Address: 
P.O. Box 28356, Washington, DC 20039
(ii) Federal Bureau of Investigation, Special Agent in Charge, Field 
office that seized the property.
(iii) Immigration and Naturalization Service District Director, Chief 
Patrol Agent, or Regional Asset Forfeiture Office at location with 
jurisdiction over the forfeiture proceeding.

    (2) The petition is to be sent to the official address provided in 
the notice of seizure and shall be sworn to by the petitioner or by the 
petitioner's attorney upon information and belief, supported by the 
client's sworn notice of representation pursuant to 28 U.S.C. 1746, as 
set out in Sec. 9.9(g). The Director of the Executive Office for Asset 
Forfeiture is delegated authority to amend the address of the official 
to whom petitions may be sent from time to time, as necessary, by 
publishing notice of the change of address in the Federal Register. 
Failure to publish a notice of change of address in the Federal 
Register shall not alter the authority of the Ruling Official to 
determine petitions for remission or mitigation nor the obligation of a 
petitioner to file a petition at the address provided in the notice of 
seizure. Failure to publish a notice of change of address in the 
Federal Register shall not be grounds for expanding the time for filing 
a petition for remission or mitigation under these regulations.
    (f) Agency investigation. Upon receipt of a petition, the seizing 
agency shall investigate the merits of the petition and prepare a 
written report containing the results of that investigation. This 
report shall be submitted to the Ruling Official for review and 
consideration.
    (g) Ruling. Upon receipt of the petition and the agency report, the 
Ruling Official for the seizing agency shall review the petition and 
the report, and shall rule on the merits of the petition. No hearing 
shall be held.
    (h) Petitions granted. If the Ruling Official grants a remission or 
mitigation of the forfeiture, a copy of the decision shall be mailed to 
the petitioner or, if represented by an attorney, to the petitioner's 
attorney. A copy shall also be sent to the United States Marshals 
Service or other property custodian. The written decision shall include 
the terms and conditions, if any, upon which the remission or 
mitigation is granted and the procedures the petitioner must follow to 
obtain release of the property or the monetary interest therein.
    (i) Petitions denied. If the Ruling Official denies a petition, a 
copy of the decision shall be mailed to the petitioner or, if 
represented by an attorney, to the petitioner's attorney of record. A 
copy of the decision shall also be sent to the United States Marshals 
Service or other property custodian. The decision shall specify the 
reason that the petition was denied. The decision shall advise the 
petitioner that a request for reconsideration of the denial of the 
petition may be submitted to the Ruling Official in accordance with 
paragraph (j) of this section.
    (j) Request for reconsideration. (1) A request for reconsideration 
of the denial of the petition shall be considered if:
    (i) It is postmarked or received by the office of the Ruling 
Official within ten (10) days from the receipt of the notice of denial 
of the petition by the petitioner; and
    (ii) The request is based on information or evidence not previously 
considered that is material to the basis for the denial or presents a 
basis clearly demonstrating that the denial was erroneous.
    (2) In no event shall a request for reconsideration be decided by 
the same Ruling Official who ruled on the original petition.
    (3) Only one request for reconsideration of a denial of a petition 
shall be considered.
    (k) Restoration of proceeds from sale. (1) A petition for 
restoration of the proceeds from the sale of forfeited property, or for 
the appraised value of forfeited property when the forfeited property 
has been retained by or delivered to a government agency for official 
use, may be submitted by an owner or lienholder in cases in which the 
petitioner:
    (i) Did you know of the seizure prior to the entry of a declaration 
of forfeiture; and
    (ii) Could not reasonably have known of the seizure prior to the 
entry of a declaration of forfeiture.
    (2) Such a petition shall be submitted pursuant to paragraphs (b) 
through (e) of this section within ninety (90) days from the date the 
property is sold or otherwise disposed of.


Sec. 9.4  Petitions in judicial forfeiture cases.

    (a) Notice of seizure. The notice of seizure and intent to forfeit 
the property shall advise any persons who may have a present ownership 
interest in the property to submit their petitions for remission or 
mitigation within thirty (30) days of the date they receive the notice 
in order to facilitate processing. Petitions shall be considered any 
time after notice until such time as the forfeited property is placed 
in official use, sold, or otherwise disposed of according to law, 
except in cases involving petitions to restore property. A notice of 
seizure shall include the title of the official and the mailing and 
street address of the official to whom petitions should be sent, the 
name of the agency seizing the property, an asset identifying number, 
and the district court docket number.
    (b) Persons who may file. A petition for remission or mitigation 
must be filed by a petitioner as defined in Sec. 9.2(o) or as 
prescribed in Secs. 9.9 (g) and (h).
    (c) Contents of petition. (1) All petitions must include the 
following information in clear and concise terms:
    (i) The name, address, and social security or other taxpayer 
identification number of the person claiming an interest in the seized 
property who is seeking remission or mitigation;
    (ii) The name of the seizing agency, the asset identifier number, 
and the date and place of seizure;
    (iii) The district court docket number;
    (iv) A complete description of the property, including the address 
or legal description of real property, and make, model, and serial 
numbers of personal property, if any; and
    (v) A description of the petitioner's interest in the property as 
owner, lienholder, or otherwise, supported by original or certified 
bills of sale, contracts, mortgages, deeds, or other documentary 
evidence.
    (2) Any factual recitation or documentation of any type in a 
petition must be supported by a sworn affidavit.
    (d) Releases. In addition to the content of the petition for 
remission or mitigation set forth in Sec. 9.4(c), the petitioner, upon 
request, also shall furnish the agency with an instrument executed by 
the titled or registered owner and any other known claimant of an 
interest in the property releasing the interest in such property.
    (e) Filing petition with Department of Justice. A petition for 
remission or mitigation of a judicial forfeiture shall be addressed to 
the Attorney General; shall be sworn to by the petitioner or by the 
petitioner's attorney upon information and belief, supported by the 
client's sworn notice of representation pursuant to 28 U.S.C. 1746, as 
set forth in Sec. 9.9(g); and shall be submitted to the United States 
Attorney for the district in which the judicial forfeiture proceedings 
are brought. A petitioner also shall submit a copy of the petition to 
the seizing agency in the judicial district in which the seizure 
occurred as specified in the notice of seizure, except in Drug 
Enforcement Administration cases, where the copy shall be submitted to 
Drug Enforcement Administration Headquarters, Office of Chief Counsel, 
P.O. Box 28356, Washington, D.C. 20038, or 700 Army Navy Drive, 
Arlington, VA 22202.
    (f) Agency investigation and recommendation; United States 
Attorney's recommendation. Upon receipt of a petition, the United 
States Attorney shall direct the seizing agency to investigate the 
merits of the petition based on the information provided by the 
petitioner and the totality of the agency's investigation of the 
underlying basis for forfeiture. The agency shall submit to the United 
States Attorney a report of its investigation and its recommendation on 
whether the petition should be granted or denied. Upon receipt of the 
agency's report and recommendation, the United States Attorney shall 
forward to the Director, Asset Forfeiture Office the petition, the 
seizing agency's report and recommendation, and the United States 
Attorney's recommendation on whether the petition should be granted or 
denied.
    (g) Ruling. The Director shall rule on the petition. No hearing 
shall be held. The Director shall not rule on any petition in any case 
in which a similar petition has been administratively denied by the 
seizing agency prior to the referral of the case to the United States 
Attorney for the institution of forfeiture proceedings.
    (h) Petitions under Internal Revenue Service liquor laws. The 
Director shall accept and consider petitions submitted in judicial 
forfeiture proceedings under the Internal Revenue Service liquor laws 
only prior to the time a decree of forfeiture is entered. Thereafter, 
district courts have exclusive jurisdiction.
    (i) Petition granted. If the Director grants a remission or 
mitigates the forfeiture, the Director shall mail a copy of the 
decision to the petitioner or if represented by an attorney, to the 
petitioner's attorney, the appropriate United States Attorney, the 
United States Marshals Service or other property custodian, and the 
appropriate seizing agency. The written decision shall include the 
terms and conditions, if any, upon which the remission or mitigation is 
granted and the procedures the petitioner must follow to obtain release 
of the property or the monetary interest therein. The Director shall 
advise the petitioner or the petitioner's attorney to consult with the 
United States Attorney as to such terms and conditions. The United 
States Attorney shall confer with the seizing agency regarding the 
release and shall coordinate disposition of the property with that 
office and the United States Marshals Service or other property 
custodian.
    (j) Petitions denied. If the Director denies a petition, a copy of 
that decision shall be mailed to the petitioner, or if represented by 
an attorney, to the petitioner's attorney of record, to the appropriate 
United States Attorney, the United States Marshals Service or other 
property custodian, and to the appropriate seizing agency. The decision 
shall specify the reason that the petition was denied. The decision 
shall advise the petitioner that a request for reconsideration of the 
denial of the petition may be submitted to the Director at the address 
provided in the decision, in accordance with paragraph (k) of this 
section.
    (k) Request for reconsideration. (1) A request for reconsideration 
of the denial shall be considered if:
    (i) It is postmarked or received by the Asset Forfeiture Office at 
the address contained in the decision denying the petition within ten 
(10) days from the receipt of the notice of denial of the petition by 
the petitioner; and
    (ii) The request is based on information or evidence not previously 
considered that is material to the basis for the denial or presents a 
basis clearly demonstrating that the denial was erroneous. A copy of 
the request must be received by the above due date by the appropriate 
United States Attorney within ten (10) days of the receipt of the 
denial by the petitioner.
    (2) In no event shall a request for reconsideration be decided by 
the Ruling Official who ruled on the original petition.
    (3) Only one request for reconsideration of a denial of a petition 
shall be considered.
    (4) Upon receipt of the request for reconsideration of the denial 
of a petition, disposition of the property will be delayed pending 
notice of the decision at the request of the Director. If the United 
States Attorney does not receive a copy of the request for 
reconsideration within the prescribed period, the disposition of the 
property may proceed.
    (l) Restoration of proceeds from sale. (1) A petition for 
restoration of the proceeds from the sale of forfeited property, or for 
the appraised value of forfeited property when the forfeited property 
has been retained by or delivered to a government agency for official 
use, may be submitted by an owner or lienholder in cases in which the 
petitioner:
    (i) Did not know of the seizure prior to the entry of a final order 
of forfeiture; and
    (ii) Could not reasonably have known of the seizure prior to the 
entry of a final order of forfeiture.
    (2) Such a petition must be submitted pursuant to paragraphs (b) 
through (e) of this section within ninety (90) days of the date the 
property was sold or otherwise disposed of.


Sec. 9.5  Criteria governing administrative and judicial remission and 
mitigation.

    (a) Remission. (1) The Ruling Official shall not grant remission of 
a forfeiture unless the petitioner establishes that:
    (i) The petitioner has a valid, good faith, and legally cognizable 
interest in the seized property as owner or lienholder as defined in 
these regulations; and
    (ii) The petitioner is innocent within the meaning of the innocent 
owner provisions of the applicable civil forfeiture statute, is a bona 
fide purchaser for value without cause to believe that the property was 
subject to forfeiture at the time of the purchase, or is one who held a 
legally cognizable interest in the seized property at the time of the 
violation underlying the forfeiture superior to that of the defendant 
within the meaning of the applicable criminal forfeiture statute, and 
is thereby entitled to recover his or her interest in the forfeiture 
property by statute. (If the applicable civil forfeiture statute 
contains no innocent owner defense, the innocent owner provisions 
applicable to 21 U.S.C. 881(a)(4) shall apply.) Unless otherwise 
provided by statute, in the case of petitioners who acquired their 
interest in the property after the time of the violation underlying the 
forfeiture, the question of whether the petitioner had knowledge of the 
violation shall be determined as of the point in time when the interest 
in the property was acquired.
    (2) The knowledge and responsibilities of petitioner's 
representative, agent, or employee in Sec. 9.5(a)(1)(ii) are imputed to 
the petitioner where the representative, agent, or employee was acting 
in the course of his or her employment and in furtherance of the 
petitioner's business.
    (3) The petitioner has the burden of establishing the basis for 
granting a petition for remission or mitigation for forfeited property, 
a restoration of proceeds of sale or appraised value of forfeited 
property, or a reconsideration of a denial of such a petition. Failure 
to provide information or documents and to submit to interviews, as 
requested, may result in a denial of the petition.
    (4) The Ruling Official shall presume a valid forfeiture and shall 
not consider whether the evidence is sufficient to support the 
forfeiture.
    (5) Willful, materially-false statements or information, made or 
furnished by the petitioner in support of a petition for remission or 
mitigation of forfeited property, the restoration of proceeds or 
appraised value of forfeited property, or the reconsideration of a 
denial of any such petition, shall be grounds for denial of such 
petition and possible prosecution for the filing of false statements.
    (b) Mitigation. (1) The Ruling Official may grant mitigation to a 
party not involved in the commission of the offense underlying the 
forfeiture:
    (i) Where the petitioner has not met the minimum conditions for 
remission, but the Ruling Official finds that some relief should be 
granted to avoid extreme hardship, and that return of the property 
combined with imposition of monetary and/or other conditions of 
mitigation in lieu of a complete forfeiture will promote the interest 
of justice and will not diminish the deterrent effect of the law. 
Extenuating circumstances justifying such a finding include those 
circumstances that reduce the responsibility of the petitioner for 
knowledge of the illegal activity, knowledge of the criminal record of 
a user of the property, or failure to take reasonable steps to prevent 
the illegal use or acquisition by another for some reason, such as a 
reasonable fear of reprisal; or
    (ii) Where the minimum standards for remission have been satisfied 
but the overall circumstances are such that, in the opinion of the 
Ruling Official, complete relief is not warranted.
    (2) The Ruling Official may in his or her discretion grant 
mitigation to a party involved in the commission of the offense 
underlying the forfeiture where certain mitigating factors exist, 
including, but not limited to: the lack of a prior record or evidence 
of similar criminal conduct; if the violation does not include drug 
distribution, manufacturing, or importation, the fact that the violator 
has taken steps, such as drug treatment, to prevent further criminal 
conduct; the fact that the violation was minimal and was not part of a 
larger criminal scheme; the fact that the violator has cooperated with 
federal, state, or local investigations relating to the criminal 
conduct underlying the forfeiture; or the fact that complete forfeiture 
of an asset is not necessary to achieve the legitimate purposes of 
forfeiture.
    (3) Mitigation may take the form of a monetary condition or the 
imposition of other conditions relating to the continued use of the 
property, and the return of the property, in addition to the imposition 
of any other costs that would be chargeable as a condition to 
remission. This monetary condition is considered as an item of cost 
payable by the petitioner, and shall be deposited into the Assets 
Forfeiture Fund as an amount realized from forfeiture in accordance 
with the applicable statute. If the petitioner fails to accept the 
Ruling Official's mitigation decision or any of its conditions, or 
fails to pay the monetary amount within twenty (20) days of the receipt 
of the decision, the property shall be sold, and the monetary amount 
imposed and other costs chargeable as a condition to mitigation shall 
be subtracted from the proceeds of the sale before transmitting the 
remainder to the petitioner.


Sec. 9.6  Special rules for specific petitioners.

    (a) General creditors. A general creditor may not be granted 
remission or mitigation of forfeiture unless he or she otherwise 
qualifies as a petitioner under these regulations.
    (b) Rival claimants. If the beneficial owner of the forfeited 
property and the owner of a security interest in the same property each 
files a petition, and if both petitions are found to be meritorious, 
the claims of the beneficial owner shall take precedence.
    (c) Voluntary bailments. A petitioner who allows another to use his 
or her property without cost, and who is not in the business of lending 
money secured by property or of leasing or renting property for profit, 
shall be granted remission or mitigation of forfeiture in accordance 
with the provisions of Sec. 9.5.
    (d) Lessors. A person engaged in the business of leasing or renting 
real or personal property on a long-term basis with the right to 
sublease shall not be entitled to remission or mitigation of a 
forfeiture of such property unless the lessor can demonstrate 
compliance with all the requirements of Sec. 9.5.
    (e) Straw owners. A petition by any person who has acquired a 
property interest recognizable under these regulations, and who knew or 
had reason to believe that the interest was conveyed by the previous 
owner for the purpose of circumventing seizure, forfeiture, or these 
regulations, shall be denied. A petition by a person who purchases or 
owns property for another who has a record for related crimes as 
defined in Sec. 9.2(r), or a petition by a lienholder who knows or has 
reason to believe that the purchaser or owner of record is not the real 
purchaser or owner, shall be denied unless both the purchaser of record 
and the real purchaser or owner meet the requirements of Sec. 9.5.
    (f) Judgment creditors. (1) A judgment creditor will be recognized 
as a lienholder if:
    (i) The judgment was duly recorded before the seizure of the 
property for forfeiture;
    (ii) Under applicable state or other local law, the judgment 
constitutes a valid lien on the property that attached to it before the 
seizure of the property for forfeiture; and
    (iii) The petitioner had no knowledge of the commission of any act 
or acts giving rise to the forfeiture at the time the judgment became a 
lien on the forfeited property.
    (2) A judgment creditor will not be recognized as a lienholder if 
the property in question is not property of which the judgment debtor 
is entitled to claim ownership under applicable state or other local 
law (e.g., stolen property). A judgment creditor is entitled under 
these regulations to no more than the amount of the judgment , 
exclusive of any interest, costs, or other fees including attorney's 
fees associated with the action that led to the judgment or its 
collection.
    (3) A judgment creditor's lien must be registered in the district 
where the property is located if the judgment was obtained outside the 
district.


Sec. 9.7  Terms and conditions of remission and mitigation.

    (a) Owners. (1) An owner's interest in property that has been 
forfeited is represented by the property itself or by a monetary 
interest equivalent to that interest at the time of seizure. Whether 
the property or a monetary equivalent will be remitted to an owner 
shall be determined at the discretion of the Ruling Official.
    (2) If a civil judicial forfeiture action against the property is 
pending, release of the property must await an appropriate court order.
    (3) Where the government sells or disposes of the property prior to 
the grant of the remission, the owner shall receive the proceeds of 
that sale, less any costs incurred by the government in the sale. The 
Ruling Official, at his or her discretion, may waive the deduction of 
costs and expenses incident to the forfeiture.
    (4) Where the owner does not comply with the conditions imposed 
upon release of the property by the Ruling Official, the property shall 
be sold. Following the sale, the proceeds shall be used to pay all 
costs of the forfeiture and disposition of the property, in addition to 
any monetary conditions imposed. The remaining balance shall be paid to 
the owner.
    (b) Lienholders. (1) When the forfeited property is to be retained 
for official use or transferred to a state of local law enforcement 
agency or foreign government pursuant to law, and remission or 
mitigation has been granted to a lienholder, the recipient of the 
property shall assure that:
    (i) In the case of remission, the lien is satisfied as determined 
through the petition process; or
    (ii) In the case of mitigation, an amount equal to the net equity, 
less any monetary conditions imposed, is paid to the lienholder prior 
to the release of the property to the recipient agency or foreign 
government.
    (2) When the forfeited property is not retained for official use or 
transferred to another agency or foreign government pursuant to law, 
the lienholder shall be notified by the Ruling Official of the right to 
select either of the following alternatives:
    (i) Return of property. The lienholder may obtain possession of the 
property after paying the United States, through the Ruling Official, 
the costs and expenses incident to the forfeiture, the amount, if any, 
by which the appraised value of the property exceeds the lienholder's 
net equity in the property, and any amount specified in the Ruling 
Official's decision as a condition to remit the property. The Ruling 
Official, at his or her discretion, may waive costs and expenses 
incident to the forfeiture. The Ruling Official shall forward a copy of 
the decision, a memorandum of disposition, and the original releases to 
the United States Marshals Service or other property custodian who 
shall thereafter release the property to the lienholder; or
    (ii) Sale of Property and Payment to Lienholder. Subject to the 
provision of Sec. 9.9(a) of this part, upon sale of the property, the 
lienholder may receive the payment of a monetary amount up to the sum 
of the lienholder's net equity, less the expenses and costs incident to 
the forfeiture and sale of the property, and any other monetary 
conditions imposed. The Ruling Official, at his or her discretion, may 
waive costs and expenses incident to the forfeiture.
    (3) If the lienholder does not notify the Ruling Official of the 
selection of one of the two options set forth in Sec. 9.7(b)(2) within 
twenty (20) days of the receipt of notification, the Ruling Official 
shall direct the United States Marshal or other property custodian to 
sell the property and pay the lienholder an amount up to the net 
equity, less the costs and expenses incurred incident to the forfeiture 
and sale, and my monetary conditions imposed. In the event a lienholder 
subsequently receives a payment of any kind on the debt owed for which 
he or she received payment as a result of the granting of remission or 
mitigation, the lienholder shall reimburse the Assets Forfeiture Fund 
to the extent of the payment received.
    (4) Where the lienholder does not comply with the conditions 
imposed upon the release of the property, the property shall be sold 
after forfeiture. From the proceeds of the sale, all costs incident to 
the forfeiture and sale shall first be deducted, and the balance up to 
the net equity, less any monetary conditions, shall be paid to the 
lienholder.


Sec. 9.8  Provisions applicable to victims.

    The provisions below apply to victims of an offense underlying the 
forfeiture of property, or of related offense, who do not have a 
present ownership interest in the forfeited property (or, in the case 
of multiple victims of an offense, who do not have a present ownership 
interest in the forfeited property that is clearly superior to that of 
other petitioner victims). These provisions apply only with respect to 
property forfeited pursuant to statutes that explicitly authorize 
restoration or remission of forfeited property to victims. Victims who 
have a superior present legally cognizable ownership interest in 
forfeited property may file petitions, as other owners, subject to the 
regulations set forth elsewhere in this Part. The claims of such owner 
victims, like those of any other owners, shall have priority over the 
claims of any non-owner victims whose claims are recognized pursuant to 
this section.
    (a) Qualification to file. A victim, as defined in Sec. 9.2(v), of 
an offense that was the statutory basis for the criminal, civil, or 
administrative forfeiture of specific property, or a victim of a 
related offense, may be granted remission of the forfeiture of that 
property,if in addition to complying with the other applicable 
provisions of this part, the victim satisfactorily demonstrates that:
    (1) A pecuniary loss of a specific amount has been directly caused 
by the criminal offense that resulted in the forfeiture, or by a 
related offense, and that the loss is supported by documentary evidence 
including invoices and receipts;
    (2) The pecuniary loss is the direct result of the illegal acts and 
is not the result of otherwise lawful acts that were committed in the 
course of a criminal offense;
    (3) The victim did not knowingly contribute to, participate in, 
benefit from, or act in a willfully blind manner towards the commission 
of the offense, or related offense, for which forfeiture was ordered;
    (4) The victim has not in fact been compensated for the wrongful 
loss of the property by the perpetrator or others; and
    (5) The victim does not have recourse reasonably available to other 
assets from which to obtain compensation for the wrongful loss of the 
property.
    (b) Pecuniary loss. The amount of the pecuniary loss suffered by a 
victim for which remission may be granted is limited to the fair market 
value of the property of which the victim was deprived as of the date 
of the occurrence of the loss. No allowance shall be made for interest 
foregone or for collateral expenses incurred to recover lost property 
or to seek other recompense.
    (c) Torts. A tort associated with illegal activity that formed the 
basis for the forfeiture shall not be a basis for remission, unless it 
constitutes the illegal activity itself, nor shall remission be granted 
for physical injuries to a petitioner or for damage to a petitioner's 
property.
    (d) Denial of petition. In the exercise of his or her discretion, 
the Ruling Official may decline to grant remission where:
    (1) There is substantial difficulty in calculating the pecuniary 
loss incurred by the victim or victims;
    (2) The amount of the remission, if granted, would be small in 
comparison with the expenses incurred by the government in determining 
whether to grant remission; or
    (3) The total number of victims is large and the monetary amount of 
the remission so small as to make its granting impractical.
    (e) Pro rata basis. In granting remission to multiple victims 
pursuant to this section, the Ruling Official should generally grant 
remission on a pro rata basis to recognized victims when petitions 
cannot be granted in full due to the limited value of the forfeited 
property. However, the Ruling Official may consider, among others, the 
following factors in establishing appropriate priorities in individual 
cases:
    (1) The specificity and reliability of the evidence establishing a 
loss;
    (2) The fact that a particular victim is suffering an extreme 
financial hardship;
    (3) The fact that a particular victim has cooperated with the 
government in the investigation related to the forfeiture or to a 
related prosecution or civil action; and
    (4) In the case of petitions filed by multiple victims of related 
offenses, the fact that a particular victim is a victim of the offense 
underlying the forfeiture.
    (f) Reimbursement. Any petitioner granted remission pursuant to 
this part shall reimburse the Assets Forfeiture Fund for the amount 
received to the extent the individual later receives compensation for 
the loss of the property from any other source. The petitioner shall 
surrender the reimbursement upon payment from any secondary source.
    (g) Claims of financial institution regulatory agencies. In cases 
involving property forfeitable under 18 U.S.C. 981(a)(1)(C) or 
(a)(1)(D), the Ruling Official may decline to grant a petition filed by 
a petitioner in whole or in part due to the lack of sufficient 
forfeitable funds to satisfy both the petition and claims of the 
financial institution regulatory agencies pursuant to 18 U.S.C. 
981(e)(3) or (7). Generally, claims of financial institution regulatory 
agencies pursuant to 18 U.S.C. 981(e)(3), or (7) shall take priority 
over claims of victims.


Sec. 9.9  Miscellaneous Provisions.

    (a) Priority of payment. Except where otherwise provided in this 
part, costs incurred by the United States Marshall Service and other 
agencies participating in the forfeiture that were incident to the 
forfeiture, sale, or other disposition of the property shall be 
deducted from the amount available for remission or mitigation. Such 
costs include, but are not limited to, court costs, storage cost, 
brokerage and other sales-related cost, the amount of any liens and 
associated costs paid by the government on the property, costs incurred 
in paying the ordinary and necessary expenses of a business seized for 
forfeiture, awards for information as authorized by statute, expenses 
of trustees or other assistants pursuant to Sec. 9.9(c), investigative 
or prosecutive costs specially incurred incident to the particular 
forfeiture, and costs incurred incident to the processing of the 
petition(s) for remission or mitigation. The remaining balance shall be 
available for remission or mitigation. The Ruling Official shall direct 
the distribution of the remaining balance in the following order of 
priority, except that the Ruling Official may exercise discretion in 
determining the priority between petitioners belonging to classes 
described in paragraphs (a)(3) and (4) of this section in exceptional 
circumstances:
    (1) Owners;
    (2) Lienholders;
    (3) Federal financial institution regulatory agencies (pursuant to 
Sec. 9.9(e)), not constituting owners or lienholders; and
    (4) Victims; not constituting owners or lienholders (pursuant to 
Sec. 9.8).
    (b) Sale or disposition of property prior to ruling. If forfeited 
property has been sold or otherwise disposed of prior to a ruling, the 
Ruling Official may grant relief in the form of a monetary amount. The 
amount realized by the sale of the property is presumed to be the value 
of the property. Monetary relief shall not be greater than the 
appraised value of the property at the time of seizure and shall not 
exceed the amount realized from the sale or other disposition. The 
proceeds of the sale shall be distributed as follows:
    (1) Payment of the government's expenses incurred incident to the 
forfeiture and sale, including court costs and storage charges, if any;
    (2) Payment to the petitioner of an amount up to his or her 
interest in the property;
    (3) Payment to the Assets Forfeiture Fund of all other costs and 
expenses incident to the forfeiture;
    (4) In the case of victims, payment of any amount up to the amount 
of his or her loss; and
    (5) Payment of the balance remaining, if any, to the Assets 
Forfeiture Fund.
    (c) Trustees and other assistants. In the exercise of his or her 
discretion, the Ruling Official, with the approval of the Executive 
Office for Asset Forfeiture, may use the services of a trustee, other 
government official, or appointed contractors to notify potential 
petitioners, process petitions, and make recommendations to the Ruling 
Official on the distribution of property to petitioners. The expense 
for such assistance shall be paid out of the forfeited funds.
    (d) Other agencies of the United States. Where another agency of 
the United States is entitled to remission or mitigation of forfeited 
assets because of an interest that is recognizable under these 
regulations, or is eligible for such transfer pursuant to 18 U.S.C. 
981(e)(6), such agency shall request the transfer in writing, in 
addition to complying with any applicable provisions of Sec. Sec. 9.3 
through 9.5. The decision to make such transfer shall be made in 
writing by the Ruling Official.
    (e) Financial institution regulatory agencies. A Ruling Official 
may direct the transfer of property under 18 U.S.C. 981(e) to certain 
federal financial institution regulatory agencies or an entity acting 
in their behalf, upon receipt of a written request, in lieu of ruling 
on a petition for remission or mitigation.
    (f) Transfers to foreign governments. A Ruling Official may decline 
to grant remission to any petitioner other than an owner or lienholder 
so that forfeited assets may be transferred to a foreign government 
pursuant to 18 U.S.C. 981(i)(1), 19 U.S.C. 1616a(c)(2), or 21 U.S.C. 
881(e)(1)(E).
    (g) Filing by attorneys. (1) A petition for remission or mitigation 
may be filed by a petitioner or by his or her attorney or legal 
guardian. If an attorney files on behalf of the petitioner, the 
petition must include a signed and sworn statement by the client-
petitioner stating that:
    (i) The attorney has the authority to represent the petitioner in 
this proceeding;
    (ii) The petitioner has fully reviewed the petition; and
    (iii) The petition is truthful and accurate in every respect.
    (2) Verbal notification of representation is not acceptable. 
Responses and notification of rulings shall not be sent to an attorney 
claiming to represent a petitioner unless a written notice of 
representation is filed. No extensions of time shall be granted due to 
delays in submission of the notice of representation.
    (h) Consolidated petitions. At the discretion of the Ruling 
Official in individual cases, a petition may be filed by one petitioner 
on behalf of other petitioners, provided the petitions are based on 
similar underlying facts, and the petitioner who files the petition has 
written authority to do so on behalf of the other petitioners. This 
authority must be either expressed in documents giving the petitioner 
the authority to file petitions for remission, or reasonably implied 
from documents giving the petitioner express authority to file claims 
or lawsuits related to the course of conduct in question on behalf of 
these petitioners. An insurer or an administrator of an employee 
benefit plan, for example, which itself has standing to file a petition 
as a ``victim'' within the meaning of Sec. 9.2(v), may also file a 
petition on behalf of its insured or plan beneficiaries for any claims 
they may have based on co-payments made to the perpetrator of the 
offense underlying the forfeiture or the perpetrator of a ``related 
offense'' within the meaning of Sec. 9.2(s), if the authority to file 
claims or lawsuits is contained in the document or documents 
establishing the plan. Where such a petition is filed, any amounts 
granted as a remission must be transferred to the other petitioners, 
not the party filing the petition; although, in his or her discretion, 
the Ruling Official may use the actual petitioner as an intermediary 
for transferring the amounts authorized as a remission to the other 
petitioners.

    Dated: June 17, 1994.
Janet Reno,
Attorney General.
[FR Doc. 94-15728 Filed 6-28-94; 8:45 am]
BILLING CODE 4410-01-M