[Federal Register Volume 60, Number 94 (Tuesday, May 16, 1995)]
[Proposed Rules]
[Pages 26010-26011]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-11950]



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DEPARTMENT OF JUSTICE

Parole Commission

28 CFR Part 2


Parole Date Advancements for Substance Abuse Treatment Program 
Completion

AGENCY: United States Parole Commission, Justice.

ACTION: Proposed rule.

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SUMMARY: The U.S. Parole Commission is proposing to amend its 
regulations on superior program achievement to permit a prisoner to be 
considered for a special advancement of the prisoner's presumptive 
release date, by up to twelve months, if the prisoner is a non-violent 
offender who has completed a program of treatment for a recognized 
problem of substance abuse and dependence. Although the existing 
regulation already sets forth a schedule of permissible advancements 
for superior program achievement, the [[Page 26011]] Commission 
proposes to add the above-described provision in order to equalize the 
incentive available to parole-eligible prisoners with the new incentive 
for completion of substance abuse treatment programs that will be 
available for federal prisoners serving no-parole sentences, under 18 
U.S.C. 3621(e)(2).

DATES: Comments must be received by June 26, 1995.

ADDRESSES: Send comments to Office of General Counsel, U.S. Parole 
Commission, 5550 Friendship Blvd., Chevy Chase, Maryland 20815.

FOR FURTHER INFORMATION CONTACT: Pamela A. Posch, Office of General 
Counsel, Telephone (301) 492-5959.

SUPPLEMENTARY INFORMATION: In the Violent Crime Control and Law 
Enforcement Act of 1994, Pub. L. 103-322 (September 13, 1994), Congress 
amended 18 U.S.C. 3621 to authorize the Bureau of Prisons to reduce the 
period a prisoner convicted of a non-violent offense remains in custody 
after he or she has successfully completed a residential substance 
abuse treatment program. This new authority is intended by Congress to 
serve as an incentive for prisoners' successful completion of 
residential substance abuse treatment programs. This authority is 
applicable, however, only to offenses committed after November 1, 1987. 
(See Section 235(a)(1) of Public Law 98-473.)
    Prisoners convicted of offenses that were committed prior to 
November 1, 1987, and who were sentenced to parole-eligible terms, must 
look to the U.S. Parole Commission for early release from prison as an 
incentive to completion of treatment programs. Under 28 C.F.R. 2.60, 
such prisoners are entitled to be considered by the Parole Commission 
for early release, pursuant to a schedule of permissible advancements 
of a presumptive release date for ``Superior Program Achievement.'' 28 
C.F.R. 2.60(e). However, the opportunity for early release is not equal 
to that authorized by 18 U.S.C. 3621(e)(2)(B), because an advancement 
of up to twelve months is permissible under Sec. 2.60 only if the 
presumptive release date established by the Parole Commission (pursuant 
to the parole guidelines at 28 C.F.R. 2.20) requires eighty-five months 
or more of imprisonment. In contrast, the Bureau of Prisons is 
authorized under Section 3621(e)(2)(B) to grant a reduction of not more 
than one year for any prisoner who successfully completes a substance 
abuse treatment program.
    Accordingly, the Parole Commission has decided to amend 28 C.F.R. 
2.60 so as to authorize a twelve-month advancement for any parole-
eligible prisoner who meets all the criteria for a reduction of custody 
under 18 U.S.C. 3621(e). The prisoner would have to be a non-violent 
offender who is found to have a recognized substance abuse problem (not 
merely a past history of drug or alcohol abuse). Admittance to a 
residential substance abuse program would be the decision of the Bureau 
of Prisons. The Parole Commission would consider the prisoner for a 
full twelve-month advancement of the prisoner's previously established 
presumptive release date only upon notification by the Bureau of 
Prisons of successful program completion. However, the Commission would 
retain authority to withhold any reduction that would result in a 
miscarriage of justice, such as the early release of a major drug 
kingpin or an offender with a high risk of recidivism.

Implementation

    Upon adoption as a final rule, the proposed amendments to 28 C.F.R. 
2.60 would be applied at any statutory interim hearing under 28 C.F.R. 
2.14 that was held on or after the effective date of the amended 
regulation. The Commission does not propose to reopen cases for 
prisoners who have a release date with no further hearing scheduled. 
For prisoners who would be considered for the special advancement, 
completion of a residential substance abuse treatment program may have 
occurred prior to the effective date of the amended regulation.
Executive Order 12866 and Regulatory Flexibility Statement

    The U.S. Parole Commission has determined that this proposed rule 
is not a significant rule within the meaning of Executive Order 12866, 
and the proposed rule has, accordingly, not been reviewed by the Office 
of Management and Budget. The proposed rule, if adopted, will not have 
a significant economic impact upon a substantial number of small 
entities, within the meaning of the Regulatory Flexibility Act, 5 
U.S.C. 605(b).

List of Subjects in 28 CFR Part 2

    Administrative practice and procedure, Probation and parole, 
Prisoners.

The Proposed Amendment

    Accordingly, the U.S. Parole Commission proposes the following 
amendment to 28 CFR Part 2.

PART 2--[AMENDED]

    1. The authority citation for 28 CFR Part 2 continues to read as 
follows:

    Authority: 18 U.S.C. 4203(a)(1) and 4204(a)(6).

    2. Section 2.60 is proposed to be amended by adding new paragraphs 
(g) and (h), to read as follows:


Sec. 2.60  Superior program achievement.

* * * * *
    (g) Upon notification from the Bureau of Prisons that a parolable 
prisoner who has no history of violent criminal conduct, and who has a 
recognized problem of substance abuse and dependence, has successfully 
completed residential substance abuse treatment in conformity with the 
criteria set forth for non-parolable prisoners in 18 U.S.C. 3621(e), 
the Commission will consider such prisoner for a special advancement, 
by up to twelve months, of the presumptive release date previously set. 
Such advancement shall be without regard to the Schedule of Permissible 
Reductions set forth in paragraph (e) of this section. It is the 
Commission's intent to award not less than twelve months in addition to 
any other advancement granted under this section, unless:
    (1) The prisoner has already received an advancement or extra good 
time credits for participation in a substance abuse treatment program; 
or
    (2) There is insufficient time remaining to permit the full 
advancement; or
    (3) There are unusual circumstances that compel a finding that an 
early parole would be inconsistent with 18 U.S.C. 4206 (e.g., a major 
narcotics trafficker whose substance abuse was clearly not a dominant 
factor in his criminal behavior).
    (h) Any advancement under this section for superior program 
achievement (including a special advancement for completion of 
residential substance abuse treatment) is subject to forfeiture, in 
whole or in part, whenever a presumptive parole date is rescinded 
pursuant to Sec. 2.34. In the case of a special advancement under 
paragraph (g) of this section, the entire advancement shall be 
forfeited if the Commission finds that the prisoner has engaged in 
usage, possession, or distribution of any illegal drugs subsequent to 
program completion.

    Dated: May 9, 1995.
Edward F. Reilly, Jr.
Chairman, U.S. Parole Commission.
[FR Doc. 95-11950 Filed 5-15-95; 8:45 am]
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