[Federal Register Volume 60, Number 26 (Wednesday, February 8, 1995)]
[Rules and Regulations]
[Pages 7446-7447]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-3058]



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DEPARTMENT OF JUSTICE

Office of the Attorney General

28 CFR Part 64

[AG Order No. 1947-95]


Designation of Officers and Employees of the United States for 
Coverage Under Section 1114 of Title 18 of the United States Code

AGENCY: Department of Justice.

ACTION: Final rule.

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SUMMARY: Part 64 of title 28, Code of Federal Regulations, designates 
categories of federal officers and employees who, in addition to those 
already designated by statute, warrant the protective coverage of 
federal criminal law. This designation confers federal jurisdiction to 
prosecute the killing, attempted killing, kidnaping, forcible assault, 
intimidation or interference with any of the federal officers or 
employees designated by this regulation while they are engaged in or on 
account of the performance of their official duties. This order adds to 
the list of covered federal officers and employees federal 
administrative law judges not previously covered and employees of the 
Office of Workers' Compensation Programs of the Department of Labor who 
adjudicate and administer claims under the Federal Employees' 
Compensation Act, the Longshore and Harbor Workers' Compensation Act 
and its extension, and the Black Lung Benefits Act. The order also 
makes technical corrections and deletes duplicative designations.

DATES: This final rule is effective February 8, 1995.

FOR FURTHER INFORMATION CONTACT: Mary Incontro, Deputy Chief, or 
Stephen M. Weglian, Attorney, Terrorism and Violent Crime Section, 
Criminal Division, Department of Justice, Washington, D.C. 20530, 
telephone (202) 514-0849.

SUPPLEMENTARY INFORMATION: Part K of chapter X of the Comprehensive 
Crime Control Act of 1984, Pub. L. 98-473, title II, Sec. 1012, 98 
Stat. 1976, 2142 (1984), amended 18 U.S.C. 1114, which prohibits the 
killing of designated federal employees, to authorize the Attorney 
General to add by regulation other federal personnel who will be 
protected by this section. The categories of federal officers and 
employees covered by section 1114 are also protected, while engaged in 
or on account of the performance of their official duties, from a 
conspiracy to kill, 18 U.S.C. 1117; kidnaping, 18 U.S.C. 1201(a)(5); 
forcible assault, interference, or intimidation, 18 U.S.C. 111; and 
threat of assault, kidnap or murder with intent to impede, intimidate, 
or retaliate against such officer or employee, 18 U.S.C. 115.
    In order to implement this legislation initially, the Department 
conducted a survey of all federal agencies to determine which federal 
employees, other than those already listed in 18 U.S.C. 1114, should be 
protected under the statute. The result of this survey was the 
promulgation of Attorney General Order No. 1177-87, 52 FR 4767, 
February 17, 1987, creating 28 CFR part 64. Section 64.1 states the 
purpose of the regulation. Section 64.2 originally listed 21 categories 
of federal employees who were considered appropriate for coverage under 
section 1114 and the other statutory provisions. Consistent with the 
purpose and legislative history of section 1114, these categories of 
federal employees were selected because their jobs involve inspection, 
investigative or other law enforcement responsibility or their work 
involves a substantial degree of physical danger from the public and 
may not be adequately addressed by available state or local law 
enforcement resources. Part 64 has been amended four times to add 
additional categories of personnel (Attorney General Order No. 1326-89, 
54 FR 9043, March 3, 1989; Attorney General Order No. 1394-90, 55 FR 
3945, February 6, 1990; Attorney General Order No. 1508-91, 56 FR 
32327, July 16, 1991; Attorney General Order No. 1636-92, 57 FR 56444, 
November 30, 1992).
    Attorney General Order No. 1636-92 established an interim rule 
that, besides making various technical modifications to Part 64, added 
these categories of employees: (1) attorneys and employees assigned to 
perform or to assist in performing, investigative, inspection or audit 
functions of the Office of the Inspector General of certain designated 
Federal entities as that term is defined by section 8E of the Inspector 
General Act of 1978, as amended, 5 U.S.C. App 3 section 8E, and of the 
Merit Systems Protection Board and the Selective Service System; (2) 
attorneys, accountants, investigators, administrative judges and other 
employees of the U.S. Securities and Exchange Commission assigned to 
perform or to assist in performing investigative, inspection or other 
law enforcement functions; (3) biologists and technicians of the U.S. 
Fish and Wildlife Service who are participating in sea lamprey control 
operations; (4) officers and employees of the Federal Aviation 
Administration, the Federal [[Page 7447]] Highway Administration, the 
Federal Railroad Administration, the Research and Special Programs 
Administration, and the Saint Lawrence Seaway Development Corporation 
of the U.S. Department of Transportation who are assigned to perform or 
assist in performing investigative, inspection or law enforcement 
functions; and (5) U.S. Trustees and Assistant U.S. Trustees, and 
bankruptcy analysts and other officers and employees of the U.S. 
Trustee System who have contact with creditors and debtors, perform 
audit functions, or perform other investigative or enforcement 
functions in administering the bankruptcy laws. No public comments were 
received.
    Administrative law judges (ALJs) perform law enforcement functions 
under various federal laws. In recent years ALJs have been recipients 
of an increasing number of threats, often by litigants in proceedings 
before ALJs who have considerable property interests at stake. 
Presently, there are over 1000 ALJs in nearly 30 federal agencies. Some 
of the ALJs in the Social Security Administration and the Securities 
and Exchange Commission are currently covered by Sec. 64.2 (x) and (w), 
respectively. While these ALJs comprise nearly 70% of all federal ALJs, 
there is no valid reason for not covering the others who experience 
similar risks. Accordingly, all administrative law judges have been 
added by paragraph (aa) of Sec. 64.2.
    The Office of Workers' Compensation Programs (OWCP) of the 
Department of Labor administers three workers' compensation laws: the 
Federal Employees' Compensation Act (FECA); the Longshore and Harbor 
Workers' Compensation Act (LHWCA) and its extension; and the Black Lung 
Benefits Act (BLBA). OWCP employees adjudicate and administer claims 
which result in the payment (or denial) of benefits under these 
respective laws. As part of this process, the employees conduct 
informal conferences and (under FECA) face-to-face hearings. The 
individual claims examiner's identity is well known to claimants, as 
are the supervisors and managers involved at all levels of the program. 
These employees' jobs involve a substantial risk of physical danger 
from some claimants and other members of the public who seek to 
influence the outcome of the claim or who are dissatisfied with the 
decisions rendered. In recent years, an increased number of threats and 
acts of violence have been directed against OWCP employees. There have 
been instances in which individuals have appeared in OWCP offices with 
vicious dogs, with purported explosives strapped to them, and with 
firearms and other dangerous weapons. Accordingly, these OWCP employees 
have been added by paragraph (bb) of Sec. 64.2.
    Because of new paragraph (aa), reference to ``administrative 
judges'' in paragraph (w) has been deleted. Also, because section 6 of 
Pub. L. 102-365, 106 Stat. 975, September 3, 1992, added to section 
1114 of title 18, U.S.C., ``any officer or employee of the Federal 
Railroad Administration assigned to perform investigative inspection or 
law enforcement functions,'' reference to the Federal Railroad 
Administration has been deleted from paragraph (z).
    On May 18, 1994, an interim rule with request for comments was 
published in the Federal Register amending part 64 of title 28, Code of 
Federal Regulations. Attorney General Order No. 1874-94, 59 FR 25815. 
One favorable comment was received. The Department has determined to 
issue the rule in final form without revision to the interim rule.
    The Department of Justice has determined that this is not a 
``significant regulatory action'' within the meaning of Executive Order 
12866 and, accordingly, this rule has not been reviewed by the Office 
of Management and Budget. This order will not have a substantial impact 
on a significant number of small entities, thus a regulatory 
flexibility analysis has not been prepared pursuant to the Regulatory 
Flexibility Act, 5 U.S.C. 601, et seq. Finally, this order does not 
have Federalism implications warranting the preparation of a Federalism 
Assessment in accordance with E.O. 12612.
    Accordingly, the interim rule amending 28 CFR part 64 which was 
published at 59 FR 25815 on May 18, 1994, is adopted as a final rule 
without change.

    Dated: January 31, 1995.
Janet Reno,
Attorney General.
[FR Doc. 95-3058 Filed 2-7-95; 8:45 am]
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