[Federal Register Volume 79, Number 12 (Friday, January 17, 2014)]
[Notices]
[Pages 3280-3300]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2014-00882]



[[Page 3279]]

Vol. 79

Friday,

No. 12

January 17, 2014

Part II





United States Sentencing Commission





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 Sentencing Guidelines for United States Courts; Notice

  Federal Register / Vol. 79 , No. 12 / Friday, January 17, 2014 / 
Notices  

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UNITED STATES SENTENCING COMMISSION


Sentencing Guidelines for United States Courts

AGENCY: United States Sentencing Commission.

ACTION: Notice of proposed amendments to sentencing guidelines, policy 
statements, and commentary. Request for public comment, including 
public comment regarding retroactive application of any of the proposed 
amendments. Notice of public hearing.

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SUMMARY: Pursuant to section 994(a), (o), and (p) of title 28, United 
States Code, the United States Sentencing Commission is considering 
promulgating certain amendments to the sentencing guidelines, policy 
statements, and commentary. This notice sets forth the proposed 
amendments and, for each proposed amendment, a synopsis of the issues 
addressed by that amendment. This notice also sets forth a number of 
issues for comment, some of which are set forth together with the 
proposed amendments; some of which are set forth independent of any 
proposed amendment; and one of which (regarding retroactive application 
of proposed amendments) is set forth in the Supplementary Information 
portion of this notice.
    The proposed amendments and issues for comment in this notice are 
as follows:
    (1) a proposed amendment to Sec.  1B1.10 (Reduction in Term of 
Imprisonment as a Result of Amended Guideline Range (Policy Statement)) 
to respond to two circuit conflicts involving the effect of a mandatory 
minimum sentence on the guideline range in resentencing proceedings 
under 18 U.S.C. Sec.  3582(c)(2);
    (2) a proposed amendment to respond to the new and expanded 
criminal offenses and increased statutory penalties provided by the 
Violence Against Women Reauthorization Act of 2013, Public Law 113-B4 
(March 7, 2013), including (A) options to amend Sec. Sec.  2A2.2 
(Aggravated Assault), 2A2.3 (Minor Assault), and 2A6.2 (Stalking or 
Domestic Violence) to address statutory changes to 18 U.S.C. Sec. Sec.  
113, 2261, 2261A, and 2262, and (B) options to amend Appendix A 
(Statutory Index) to address certain offenses established or affected 
by that Act, including 18 U.S.C. Sec.  113, 1153, 1597, and 2423; 8 
U.S.C. Sec.  1375a; and 47 U.S.C. Sec.  223, and related issues for 
comment;
    (3) a proposed amendment to the guidelines applicable to drug 
offenses, including (A) a detailed request for comment on whether any 
changes should be made to the Drug Quantity Table in Sec.  2D1.1 
(Unlawful Manufacturing, Importing, Exporting, or Trafficking 
(Including Possession with Intent to Commit These Offenses); Attempt or 
Conspiracy) across drug types; (B) a proposed amendment that 
illustrates one possible set of changes to the Drug Quantity Table in 
Sec.  2D1.1, together with conforming changes to the chemical quantity 
tables in Sec.  2D1.11 (Unlawfully Distributing, Importing, Exporting 
or Possessing a Listed Chemical; Attempt or Conspiracy); and (C) an 
issue for comment on whether the guidelines adequately address the 
environmental and other harms of drug production operations (including, 
in particular, the cultivation of marihuana) on public lands or while 
trespassing on private property;
    (4) a proposed amendment to Sec.  2K2.1 (Unlawful Receipt, 
Possession, or Transportation of Firearms or Ammunition; Prohibited 
Transactions Involving Firearms or Ammunition) to clarify how 
principles of relevant conduct apply in cases in which the defendant is 
convicted of a firearms offense (e.g., being a felon in possession of a 
firearm) in two situations: first, when the defendant unlawfully 
possessed one firearm on one occasion and a different firearm on 
another occasion (but was not necessarily convicted of the second 
offense); and second, when the defendant unlawfully possessed a firearm 
and also used a firearm in connection with another offense, such as 
robbery or attempted murder (but was not necessarily convicted of the 
other offense), and related issues for comment;
    (5) a proposed amendment to Sec.  2L1.1 (Smuggling, Transporting, 
or Harboring an Unlawful Alien) to address cases in which aliens are 
transported through dangerous terrain, e.g., along the southern border 
of the United States, and related issues for comment;
    (6) a proposed amendment to address differences among the circuits 
in the calculation of the guideline range of supervised release under 
Sec.  5D1.2 (Term of Supervised Release) in two situations: first, when 
there is a statutory minimum term of supervised release; and second, 
when the instant offense of conviction is failure to register as a sex 
offender under 18 U.S.C. Sec.  2250, and related issues for comment; 
and
    (7) a proposed amendment to Sec.  5G1.3 (Imposition of a Sentence 
on a Defendant Subject to an Undischarged Term of Imprisonment) to 
address certain types of cases in which the defendant is subject to an 
undischarged term of imprisonment, including (A) a proposed change 
requiring the court to account for an undischarged term of imprisonment 
that is relevant conduct to the instant federal offense of conviction 
but does not result in a Chapter Two or Chapter Three increase; (B) a 
proposed change allowing the court to account for an undischarged state 
term of imprisonment that is anticipated but not yet imposed; and (C) a 
proposed change allowing the court to adjust the sentence if the 
defendant is a deportable alien who is likely to be deported after 
imprisonment and is serving an undischarged term of imprisonment that 
resulted from an unrelated offense, and related issues for comment.

DATES: (1) Written Public Comment.--Written public comment regarding 
the proposed amendments and issues for comment set forth in this 
notice, including public comment regarding retroactive application of 
any of the proposed amendments, should be received by the Commission 
not later than March 18, 2014.
    (2) Public Hearings.--The Commission plans to hold public hearings 
regarding the proposed amendments and issues for comment set forth in 
this notice. Specifically, a public hearing on Proposed Amendment 2 of 
this notice (relating to the Violence Against Women Act of 2013) and 
other issues related to the reauthorization of the Violence Against 
Women Act of 2013 will be held on February 13, 2014, and a public 
hearing on other proposed amendments will be held on March 13, 2014. 
Further information regarding the public hearings, including 
requirements for testifying and providing written testimony, as well as 
the location, time, and scope of the hearings, will be provided by the 
Commission on its Web site at www.ussc.gov.

ADDRESSES: Public comment should be sent to the Commission by 
electronic mail or regular mail. The email address for public comment 
is [email protected]. The regular mail address for public 
comment is United States Sentencing Commission, One Columbus Circle, 
NE., Suite 2-500, Washington, DC 20002-8002, Attention: Public Affairs.

FOR FURTHER INFORMATION CONTACT: Jeanne Doherty, Public Affairs 
Officer, (202) 502-4502, [email protected].

SUPPLEMENTARY INFORMATION: The United States Sentencing Commission is 
an independent agency in the judicial branch of the United States 
Government. The Commission promulgates sentencing guidelines and policy 
statements for federal courts

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pursuant to 28 U.S.C. Sec.  994(a). The Commission also periodically 
reviews and revises previously promulgated guidelines pursuant to 28 
U.S.C. Sec.  994(o) and submits guideline amendments to the Congress 
not later than the first day of May each year pursuant to 28 U.S.C. 
Sec.  994(p).
    The proposed amendments in this notice are presented in one of two 
formats. First, some of the amendments are proposed as specific 
revisions to a guideline or commentary. Bracketed text within a 
proposed amendment indicates a heightened interest on the Commission's 
part in comment and suggestions regarding alternative policy choices; 
for example, a proposed enhancement of [2][4][6] levels indicates that 
the Commission is considering, and invites comment on, alternative 
policy choices regarding the appropriate level of enhancement. 
Similarly, bracketed text within a specific offense characteristic or 
application note means that the Commission specifically invites comment 
on whether the proposed provision is appropriate. Second, the 
Commission has highlighted certain issues for comment and invites 
suggestions on how the Commission should respond to those issues.
    The Commission requests public comment regarding whether, pursuant 
to 18 U.S.C. Sec.  3582(c)(2) and 28 U.S.C. Sec.  994(u), any proposed 
amendment published in this notice should be included in subsection (c) 
of Sec.  1B1.10 (Reduction in Term of Imprisonment as a Result of 
Amended Guideline Range (Policy Statement)) as an amendment that may be 
applied retroactively to previously sentenced defendants. The 
Commission lists in Sec.  1B1.10(c) the specific guideline amendments 
that the court may apply retroactively under 18 U.S.C. Sec.  
3582(c)(2). The background commentary to Sec.  1B1.10 lists the purpose 
of the amendment, the magnitude of the change in the guideline range 
made by the amendment, and the difficulty of applying the amendment 
retroactively to determine an amended guideline range under Sec.  
1B1.10(b) as among the factors the Commission considers in selecting 
the amendments included in Sec.  1B1.10(c). To the extent practicable, 
public comment should address each of these factors.
    Additional information pertaining to the proposed amendments 
described in this notice may be accessed through the Commission's Web 
site at www.ussc.gov.

    Authority: 28 U.S.C. Sec.  994(a), (o), (p), (x); USSC Rules of 
Practice and Procedure, Rule 4.4.

Patti B. Saris,
Chair.

1. 1B1.10

    Synopsis of Proposed Amendment: This proposed amendment responds to 
two circuit conflicts involving the effect of a mandatory minimum 
sentence on the guideline range in resentencing proceedings under 18 
U.S.C. Sec.  3582(c)(2) and the Commission's policy statement at Sec.  
1B1.10 (Reduction in Term of Imprisonment as a Result of Amended 
Guideline Range).
    Section 3582(c)(2) authorizes the court to reduce a defendant's 
term of imprisonment if the defendant's sentence was based on a 
sentencing range that has subsequently been lowered by the Sentencing 
Commission and the reduction is consistent with applicable policy 
statements issued by the Commission. The applicable policy statement is 
Sec.  1B1.10, which provides guidance and limitations for a court in 
such a proceeding. Effective November 1, 2011, the Commission 
promulgated Amendment 750, which made a series of changes to the drug 
guidelines to implement the Fair Sentencing Act of 2010, and Amendment 
759, which made two parts of Amendment 750 available for retroactive 
application. Amendment 759 also revised Sec.  1B1.10 to provide that 
the new sentence may not be lower than the amended guideline range 
unless the original sentence was below the original guideline range 
because of a government motion for substantial assistance. In such a 
case, ``a reduction comparably less than the amended guideline range'' 
may be appropriate. See Sec.  1B1.10(b)(2)(B). Circuits are now split 
over how to apply Sec.  1B1.10(b)(2)(B) in two situations.

Original Guideline Range Above the Mandatory Minimum

    First, there are cases in which the defendant's original guideline 
range was above the mandatory minimum but the defendant received a 
sentence below the mandatory minimum pursuant to a government motion 
for substantial assistance. For example, consider a case in which the 
mandatory minimum was 240 months, the original guideline range was 262 
to 327 months, and the defendant's original sentence was 160 months, 
representing a 39 percent reduction for substantial assistance below 
the bottom of the guideline range. On resentencing pursuant to 
Amendment 750, the amended guideline range as determined on the 
Sentencing Table is 168 to 210 months, but after application of the 
``trumping'' mechanism in Sec.  5G1.1 (Sentencing on a Single Count of 
Conviction), the mandatory minimum sentence of 240 months is the 
guideline sentence. See Sec.  5G1.1(b). Section 1B1.10(b)(2)(B) 
provides that such a defendant may receive a comparable 39 percent 
reduction from the bottom of the amended guideline range, but circuits 
are split over what to use as the bottom of the range.
    The Eighth Circuit has taken the view that the bottom of the 
amended guideline range in such a case would be 240 months, i.e., the 
guideline sentence that results after application of the ``trumping'' 
mechanism in Sec.  5G1.1. See United States v. Golden, 709 F.3d 1229, 
1231-33 (8th Cir. 2013). In contrast, the Seventh Circuit has taken the 
view that the bottom of the amended guideline range in such a case 
would be 168 months, i.e., the bottom of the amended range as 
determined by the Sentencing Table, without application of the 
``trumping'' mechanism in Sec.  5G1.1. See United States v. Wren, 706 
F.3d 861, 863 (7th Cir. 2013). Each circuit found support for its view 
in an Eleventh Circuit decision, United States v. Liberse, 688 F.3d 
1198 (11th Cir. 2012), which also discussed this issue.

Bottom of Original Guideline Range Below the Mandatory Minimum

    Second, there are cases in which the defendant's original guideline 
range as determined by the Sentencing Table was, at least in part, 
below the mandatory minimum, and the defendant received a sentence 
below the mandatory minimum pursuant to a government motion for 
substantial assistance. In these cases, the ``trumping'' mechanism in 
Sec.  5G1.1 operated at the original sentence to restrict the guideline 
range to be no less than the mandatory minimum.
    For example, consider a case in which the original Sentencing Table 
guideline range was 140 to 175 months but the mandatory minimum was 240 
months, resulting (after operation of Sec.  5G1.1) in a guideline 
sentence of 240 months. The defendant's original sentence was 96 
months, representing a 60 percent reduction for substantial assistance 
below the statutory and guideline minimum. On resentencing, the amended 
Sentencing Table guideline range is 110 to 137 months, resulting (after 
operation of Sec.  5G1.1) in a guideline sentence of 240 months. 
Section 1B1.10(b)(2)(B) provides that such a defendant may receive a 
reduction from the bottom of the amended guideline range, but circuits

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are split over what to use as the bottom of the range.
    The Eleventh Circuit, the Sixth Circuit, and the Second Circuit 
have taken the view that the bottom of the amended range in such a case 
would remain 240 months, i.e., the guideline sentence that results 
after application of the ``trumping'' mechanism in Sec.  5G1.1. See 
United States v. Glover, 686 F.3d 1203, 1208 (11th Cir. 2012); United 
States v. Joiner, 727 F.3d 601 (6th Cir. 2013); United States v. 
Johnson, 732 F.3d 109 (2d Cir. 2013). Under these decisions, the 
defendant in the example would have an original range of 240 months and 
an amended range of 240 months, and would not be eligible for any 
reduction because the range has not been lowered.
    In contrast, the Third Circuit and the District of Columbia Circuit 
have taken the view that the bottom of the amended range in such a case 
would be 110 months, i.e., the bottom of the Sentencing Table guideline 
range. See United States v. Savani, 733 F.3d 56, 66-7 (3d Cir. 2013); 
In re Sealed Case, 722 F.3d 361, 369-70 (D.C. Cir. 2013).
    The proposed amendment presents two options for responding to these 
conflicts:
    Option 1 would generally adopt the approach of the Third Circuit in 
Savani and the District of Columbia Circuit in In re Sealed Case. It 
would amend Sec.  1B1.10 to specify that, if the case involves a 
statutorily required minimum sentence and the court had the authority 
to impose a sentence below the statutorily required minimum sentence 
pursuant to a government motion to reflect the defendant's substantial 
assistance to authorities, then for purposes of Sec.  1B1.10 the 
amended guideline range shall be determined without regard to the 
operation of Sec.  5G1.1 and Sec.  5G1.2.
    Option 2 would generally adopt the approach of the Eleventh Circuit 
in Glover, the Sixth Circuit in Joiner, and the Second Circuit in 
Johnson, which is also consistent with the approach of the Eighth 
Circuit in Golden. It would amend Sec.  1B1.10 to specify that, if the 
case involves a statutorily required minimum sentence and the court had 
the authority to impose a sentence below the statutorily required 
minimum sentence pursuant to a government motion to reflect the 
defendant's substantial assistance to authorities, then for purposes of 
Sec.  1B1.10 the amended guideline range shall be determined after 
operation of Sec.  5G1.1 or Sec.  5G1.2, as appropriate.
    Each option also adds commentary with examples.
Proposed Amendment
    Section 1B1.10 is amended in each of subsections (a)(1), (a)(2)(A), 
(a)(2)(B), and (b)(1) by striking ``subsection (c)'' each place such 
term appears and inserting ``subsection (d)''; by redesignating 
subsection (c) as subsection (d); and by inserting after subsection (b) 
the following new subsection (c) (within which two options are 
provided):
    ``(c) Cases Involving Mandatory Minimum Sentences and Substantial 
Assistance.--If the case involves a statutorily required minimum 
sentence and the court had the authority to impose a sentence below the 
statutorily required minimum sentence pursuant to a government motion 
to reflect the defendant's substantial assistance to authorities, then 
for purposes of this policy statement:

[Option 1:

    the amended guideline range shall be determined without regard to 
the operation of Sec.  5G1.1 (Sentencing on a Single Count of 
Conviction) and Sec.  5G1.2 (Sentencing on Multiple Counts of 
Conviction).]

[Option 2:

    the amended guideline range shall be determined after operation of 
Sec.  5G1.1 (Sentencing on a Single Count of Conviction) or Sec.  5G1.2 
(Sentencing on Multiple Counts of Conviction), as appropriate.]''.
    The Commentary to Sec.  1B1.10 captioned ``Application Notes'' is 
amended in Notes 1(A), 2, and 4 by striking ``subsection (c)'' each 
place such term appears and inserting ``subsection (d)''; by 
redesignating Notes 4 through 6 as Notes 5 through 7, respectively; and 
by inserting after Note 3 the following new Note 4 (within which, two 
options are provided, corresponding to the two options provided above):
    ``4. Application of Subsection (c).--As stated in subsection (c), 
if the case involves a statutorily required minimum sentence and the 
court had the authority to impose a sentence below the statutorily 
required minimum sentence pursuant to a government motion to reflect 
the defendant's substantial assistance to authorities, then for 
purposes of this policy statement:

[Option 1, continued:

    the amended guideline range shall be determined without regard to 
the operation of Sec.  5G1.1 (Sentencing on a Single Count of 
Conviction) and Sec.  5G1.2 (Sentencing on Multiple Counts of 
Conviction). For example:
    (A) Defendant A is subject to a mandatory minimum term of 
imprisonment of 120 months. The original guideline range at the time of 
sentencing was 135 to 168 months, which is entirely above the mandatory 
minimum, and the court imposed a sentence of 101 months pursuant to a 
government motion to reflect the defendant's substantial assistance to 
authorities. The court determines that the amended guideline range as 
calculated on the Sentencing Table is 108 to 135 months. Ordinarily, 
Sec.  5G1.1 would operate to restrict the amended guideline range to 
120 to 135 months, to reflect the mandatory minimum term of 
imprisonment. For purposes of this policy statement, however, the 
amended guideline range remains 108 to 135 months.
    To the extent the court considers it appropriate to provide a 
reduction comparably less than the amended guideline range pursuant to 
subsection (b)(2)(B), Defendant A's original sentence of 101 months 
amounted to a reduction of approximately 25 percent below the minimum 
of the original guideline range of 135 months. Therefore, an amended 
sentence of 81 months (representing a reduction of approximately 25 
percent below the minimum of the amended guideline range of 108 months) 
would amount to a comparable reduction and may be appropriate.
    (B) Defendant B is subject to a mandatory minimum term of 
imprisonment of 120 months. The original guideline range at the time of 
sentencing (as calculated on the Sentencing Table) was 108 to 135 
months, which was restricted by operation of Sec.  5G1.1 to a range of 
120 to 135 months. See Sec.  5G1.1(c)(2). The court imposed a sentence 
of 90 months pursuant to a government motion to reflect the defendant's 
substantial assistance to authorities. The court determines that the 
amended guideline range as calculated on the Sentencing Table is 87 to 
108 months. Ordinarily, Sec.  5G1.1 would operate to restrict the 
amended guideline range to precisely 120 months, to reflect the 
mandatory minimum term of imprisonment. See Sec.  5G1.1(b). For 
purposes of this policy statement, however, the amended guideline range 
is considered to be 87 to 108 months (i.e., unrestricted by operation 
of Sec.  5G1.1 and the statutory minimum of 120 months).
    To the extent the court considers it appropriate to provide a 
reduction comparably less than the amended guideline range pursuant to 
subsection (b)(2)(B), Defendant B's original sentence of 90 months 
amounted to a

[[Page 3283]]

reduction of approximately 25 percent below the original guideline 
range of 120 months. Therefore, an amended sentence of 65 months 
(representing a reduction of approximately 25 percent below the minimum 
of the amended guideline range of 87 months) would amount to a 
comparable reduction and may be appropriate.]

[Option 2, continued:

    the amended guideline range shall be determined after operation of 
Sec.  5G1.1 (Sentencing on a Single Count of Conviction) or Sec.  5G1.2 
(Sentencing on Multiple Counts of Conviction), as appropriate. For 
example:
    (A) Defendant A is subject to a mandatory minimum term of 
imprisonment of 120 months. The original guideline range at the time of 
sentencing was 135 to 168 months, which is entirely above the mandatory 
minimum, and the court imposed a sentence of 101 months pursuant to a 
government motion to reflect the defendant's substantial assistance to 
authorities. The court determines that the amended guideline range as 
calculated on the Sentencing Table is 108 to 135 months. For purposes 
of this policy statement, the amended guideline range is considered to 
be 120 to 135 months (i.e., restricted by operation of Sec.  5G1.1 to 
reflect the statutory minimum of 120 months).
    To the extent the court considers it appropriate to provide a 
reduction comparably less than the amended guideline range pursuant to 
subsection (b)(2)(B), Defendant A's original sentence of 101 months 
amounted to a reduction of approximately 25 percent below the minimum 
of the original guideline range of 135 months. Therefore, an amended 
sentence of 90 months (representing a reduction of 25 percent below the 
minimum of the amended guideline range of 120 months) would amount to a 
comparable reduction and may be appropriate.
    (B) Defendant B is subject to a mandatory minimum term of 
imprisonment of 120 months. The original guideline range at the time of 
sentencing (as calculated on the Sentencing Table) was 108 to 135 
months, which was restricted by operation of Sec.  5G1.1 to a range of 
120 to 135 months. See Sec.  5G1.1(c)(2). The court imposed a sentence 
of 90 months pursuant to a government motion to reflect the defendant's 
substantial assistance to authorities. The court determines that the 
amended guideline range as calculated on the Sentencing Table is 87 to 
108 months. For purposes of this policy statement, the amended 
guideline range is considered to be precisely 120 months (i.e., 
restricted by operation of Sec.  5G1.1 to reflect the statutory minimum 
of 120 months).
    To the extent the court considers it appropriate to provide a 
reduction comparably less than the amended guideline range pursuant to 
subsection (b)(2)(B), Defendant B's original sentence of 90 months 
amounted to a reduction of 25 percent below the minimum of the original 
guideline range of 120 months. However, subsection (b)(2)(B) precludes 
this defendant from receiving any further reduction, because the point 
from which any comparable reduction would be determined has not 
changed; the minimum of the original guideline range (120 months) and 
the minimum of the amended guideline range (120 months) are the same, 
so any comparable reduction that may be appropriate under subsection 
(b)(2)(B) would be equivalent to the reduction Defendant B already 
received in the original sentence of 90 months.]''.
    The Commentary to Sec.  1B1.10 captioned ``Background'' is amended 
by striking ``subsection (c)'' both places such term appears and 
inserting ``subsection (d)''.

2. Violence Against Women Reauthorization Act

    Synopsis of Proposed Amendment: This proposed amendment responds to 
the Violence Against Women Reauthorization Act of 2013, Public Law 113-
4 (March 7, 2013), which, among other things, provided new and expanded 
criminal offenses and increased penalties for certain crimes involving 
assault, sexual abuse, stalking, domestic violence, harassment, and 
human trafficking. Issues for comment are also included.
    This proposed amendment and issues for comment address the issues 
raised by the statutory changes made by the Act in the following 
manner:

(A) 18 U.S.C. Sec.  113 (Assaults Within Maritime and Territorial 
Jurisdiction)

    Synopsis of Proposed Amendment: This part of the proposed amendment 
addresses changes to 18 U.S.C. Sec.  113 (Assaults within maritime and 
territorial jurisdiction). Section 113 sets forth a range of penalties 
for assaults within the special maritime and territorial jurisdiction 
of the United States. This jurisdiction is defined by statute to 
include, among other things, maritime areas such as the high seas; land 
areas such as federal lands and buildings; federal holdings overseas 
such as diplomatic missions and military bases; and aircraft, vessels, 
and space vehicles belonging to the federal government, as well as 
certain other aircraft, vessels, and space vehicles. See 18 U.S.C. 
Sec.  7. Section 113 also applies to assaults committed by Indians or 
non-Indians within Indian country. See 18 U.S.C. Sec.  1153 (Offenses 
committed within Indian country), commonly referred to as the Major 
Crimes Act, and 18 U.S.C. Sec.  1152, commonly referred to as the 
General Crimes Act.
    Before enactment of the Act, section 113(a) contained seven 
paragraphs, (1) through (7). Each of these paragraphs applies to 
certain types of assault and provides a statutory maximum term of 
imprisonment. Most of these paragraphs are referenced in Appendix A 
(Statutory Index) to specific offense guidelines in Chapter Two, Part 
A. The Act revised certain paragraphs and added a new paragraph (8).
Sec. 113(a)(1) Assault With Intent To Commit Sexual Abuse (20-Year 
Maximum)
    Before enactment of the Act, section 113(a)(1) applied to assault 
with intent to commit murder and provided a statutory maximum term of 
imprisonment of 20 years. Section 113(a)(1) is referenced in Appendix A 
to Sec.  2A2.1 (Assault with Intent to Commit Murder; Attempted 
Murder).
    The Act expanded section 113(a)(1) so that it applies not only to 
assault with intent to commit murder, but also to assault with intent 
to commit a violation of section 2241 (Aggravated sexual abuse) or 2242 
(Sexual abuse). The proposed amendment amends Appendix A so that 
section 113(a)(1) is also referenced to Sec.  2A3.1 (Criminal Sexual 
Abuse; Attempt to Commit Criminal Sexual Abuse), which is the guideline 
to which offenses under sections 2241 and 2242 are referenced.
Sec. 113(a)(2) Assault With Intent To Commit Certain Sex Offenses (10-
Year Maximum)
    Before enactment of the Act, section 113(a)(2) applied to assault 
with intent to commit any felony, except murder or a felony under 
chapter 109A, and provided a statutory maximum term of imprisonment of 
10 years. Felonies under chapter 109A include violations of sections 
2241, 2242, 2243 (Sexual abuse of a minor or ward), and 2244 (Abusive 
sexual contact). Section 113(a)(2) is referenced in Appendix A to Sec.  
2A2.2 (Aggravated Assault).
    The Act expanded the scope of section 113(a)(2) by narrowing the 
chapter 109A exception. Section 113(a)(2) now applies to assault with 
intent to commit any felony, except murder or a violation of section 
2241 or 2242. The effect of this change is that an assault with intent 
to commit a felony

[[Page 3284]]

violation of section 2243 or 2244 may now be prosecuted under section 
113(a)(2). The proposed amendment amends Appendix A so that section 
113(a)(2) is referenced not only to Sec.  2A2.2 but also to Sec. Sec.  
2A3.2, 2A3.3, and 2A3.4 (i.e., the guidelines to which offenses under 
sections 2243 and 2244 are referenced).
Sec. 113(a)(4) Assault by Striking, Beating, or Wounding (1-Year 
Maximum)
    Section 113(a)(4) applies to assault by striking, beating, or 
wounding. Before the Act it provided a statutory maximum term of 
imprisonment of 6 months. Section 113(a)(4) is not referenced in 
Appendix A.
    The Act increased the statutory maximum term of imprisonment to 1 
year. The proposed amendment amends Appendix A to reference section 
113(a)(4) to Sec.  2A2.3 (Minor Assault).
Sec. 113(a)(7) Assault Resulting in Substantial Bodily Injury to 
Spouse, Intimate Partner, or Dating Partner (5-Year Maximum)
    Before enactment of the Act, section 113(a)(7) applied to assault 
resulting in substantial bodily injury to an individual who has not 
attained the age of 16 years, and provided a statutory maximum term of 
imprisonment of 5 years. Section 113(a)(7) is referenced in Appendix A 
(Statutory Index) to Sec.  2A2.3. Among other things, Sec.  2A2.3 has a 
4-level enhancement if the offense resulted in substantial bodily 
injury to an individual who has not attained the age of 16 years.
    The Act expanded section 113(a)(7) so that it also applies to 
assault resulting in substantial bodily injury to a spouse or intimate 
partner or dating partner. The proposed amendment amends Sec.  2A2.3 to 
broaden the scope of the 4-level enhancement. Two options are 
presented:
    Option 1 broadens the scope of the 4-level enhancement so that it 
applies not only to a case in which the offense resulted in substantial 
bodily injury to an individual who has not attained the age of 16 
years, but also to a case in which the offense resulted in substantial 
bodily injury to a spouse or intimate partner or dating partner.
    Option 2 broadens the scope of the 4-level enhancement so that it 
applies to any case in which the offense resulted in substantial bodily 
injury.
    In addition, the proposed amendment brackets the possibility of 
amending Appendix A to provide that offenses under section 113(a)(7) 
would also be referenced to Sec.  2A6.2 (Stalking or Domestic 
Violence).
Sec. 113(a)(8) Assault of a Spouse, Intimate Partner, or Dating Partner 
by Strangling or Suffocating (10-Year Maximum)
    Section 113(a)(8) is a new provision established by the Act. It 
applies to assault of a spouse, intimate partner, or dating partner by 
strangling, suffocating, or attempting to strangle or suffocate, and 
provides a statutory maximum term of imprisonment of 10 years.
    The proposed amendment makes three changes to address section 
113(a)(8). First, it amends Appendix A to reference section 113(a)(8) 
to Sec.  2A2.2.
    Second, as a conforming change, it amends the Commentary to Sec.  
2A2.2 to provide that the term ``aggravated assault'' includes an 
assault involving strangulation, suffocation, or an attempt to strangle 
or suffocate.
    Third, the proposed amendment adds a new specific offense 
characteristic to Sec.  2A2.2. Two options are presented:
    Option 1 provides an enhancement of [3] to [7] levels if the bodily 
injury enhancement in subsection (b)(3) does not apply and the offense 
involved strangling, suffocating, or attempting to strangle or 
suffocate.
    Option 2 provides an enhancement of [3] to [7] levels if the 
offense involves strangling, suffocating, or attempting to strangle or 
suffocate. It brackets the possibility of limiting the cumulative 
impact of the bodily injury enhancement in subsection (b)(3) and this 
new enhancement to [10]-[12] levels. (Note that the guideline already 
contains a provision limiting the cumulative impact of subsections 
(b)(2) and (b)(3) to not more than 10 levels.)
    In addition, the proposed amendment brackets the possibility of 
amending Appendix A to provide offenses under section 113(a)(8) with a 
reference to Sec.  2A6.2 (Stalking or Domestic Violence). Section 2A6.2 
has a 2-level enhancement that applies if the offense involved an 
aggravating factor such as bodily injury, and a 4-level enhancement 
that applies if the offense involved more than one such aggravating 
factor. The proposed amendment amends Sec.  2A6.2 to provide that the 
enhancement also applies if the offense involved strangling, 
suffocating, or attempting to strangle or suffocate. Two options are 
presented:
    Option 1 would establish strangling, suffocating, or attempting to 
strangle or suffocate as a separate new aggravating factor. Under this 
option, a case that involves this factor would receive the 2-level 
enhancement, and a case that involves both this factor and another 
factor (such as bodily injury) would receive the 4-level enhancement.
    Option 2 would incorporate strangling, suffocating, or attempting 
to strangle or suffocate within the existing aggravating factor for 
bodily injury. Under this option, a case that involves both bodily 
injury and strangling or suffocating would receive the 2-level 
enhancement rather than a 4-level enhancement.
    Following the proposed amendment are issues for comment on whether 
certain other changes to the guidelines are appropriate to respond to 
these and other changes to section 113.
Proposed Amendment
    Section 2A2.2(b) is amended by redesignating paragraphs (4) through 
(6) as paragraphs (5) through (7), respectively; and by inserting after 
paragraph (3) the following new paragraph (4) (two options are 
provided):

[Option 1:

    ``(4) If (A) subdivision (3) does not apply; and (B) the offense 
involved assault by strangling, suffocating, or attempting to strangle 
or suffocate, increase by [3]-[7] levels.'']

[Option 2:

    ``(4) If the offense involved assault by strangling, suffocating, 
or attempting to strangle or suffocate, increase by [3]-[7] levels. 
[However, the cumulative adjustments from application of subdivisions 
(3) and (4) shall not exceed [10]-[12] levels.]]''.
    The Commentary to Sec.  2A2.2 captioned ``Application Notes'' is 
amended in Note 1 by striking ``or'' before ``(C)''; by inserting after 
``(C)'' the following: ``strangling, suffocating, or attempting to 
strangle or suffocate; or (D)''; and by adding at the end the following 
new paragraph:

    `` `Strangling' and `suffocating' have the meaning given those 
terms in 18 U.S.C. Sec.  113.'';

and in Note 4 by striking ``(b)(6)'' and inserting ``(b)(7)''.
    The Commentary to Sec.  2A2.2 captioned ``Background'' is amended 
in the first paragraph by striking the comma after ``serious bodily 
injury'' and inserting a semicolon, and by striking the comma after 
``cause bodily injury'' and inserting ``; strangling, suffocating, or 
attempting to strangle or suffocate;'';

and in the paragraph that begins ``Subsection'' by striking ``(b)(6)'' 
both places such term appears and inserting ``(b)(7)''.

    Section 2A2.3 is amended as follows (two options are provided):

[[Page 3285]]

[Option 1:

    Section 2A2.3(b)(1) is amended by inserting after ``substantial 
bodily injury to'' the following: ``a spouse or intimate partner, a 
dating partner, or''.
    The Commentary to Sec.  2A2.3 captioned ``Application Notes'' is 
amended in Note 1 by inserting after the paragraph that begins `` 
`Minor assault' means'' the following new paragraph:

`` `Spouse,' `intimate partner,' and `dating partner' have the meaning 
given those terms in 18 U.S.C. Sec.  2266.'']

[Option 2:

    Section 2A2.3(b)(1) is amended by striking ``to an individual under 
the age of sixteen years''.]
    Section 2A6.2 is amended as follows (two options are provided):

[Option 1:

    Section 2A6.2(b)(1) is amended by striking ``(D)'' and inserting 
``(E)''; by inserting after ``(C)'' the following: ``strangling, 
suffocating, or attempting to strangle or suffocate; (D)''; and by 
striking ``these aggravating factors'' and inserting ``subdivisions 
(A), (B), (C), (D), or (E)''.
    The Commentary to Sec.  2A6.2 captioned ``Application Notes'' is 
amended in Note 1 by adding at the end the following new paragraph:

`` `Strangling' and `suffocating' have the meaning given those terms in 
18 U.S.C. Sec.  113.'';

and in Notes 3 and 4 by striking ``(b)(1)(D)'' each place such term 
appears and inserting ``(b)(1)(E)''.]

[Option 2:

    Section 2A6.2(b)(1)(B) is amended by inserting after ``bodily 
injury'' the following: ``or strangling, suffocating, or attempting to 
strangle or suffocate''; and by striking ``these aggravating factors'' 
and inserting ``subdivisions (A), (B), (C), or (D)''.
    The Commentary to Sec.  2A6.2 captioned ``Application Notes'' is 
amended in Note 1 by adding at the end the following new paragraph:

`` `Strangling' and `suffocating' have the meaning given those terms in 
18 U.S.C. Sec.  113.'']
    Appendix A (Statutory Index) is amended in the line referenced to 
18 U.S.C. Sec.  113(a)(1) by adding ``, 2A3.1'' at the end;

in the line referenced to 18 U.S.C. Sec.  113(a)(2) by adding ``, 
2A3.2, 2A3.3, 2A3.4'' at the end;

after the line referenced to 18 U.S.C. Sec.  113(a)(3) by inserting the 
following new line reference:

``18 U.S.C. Sec.  113(a)(4) 2A2.3'';

in the line referenced to 18 U.S.C. Sec.  113(a)(7) by adding ``[, 
2A6.2]'' at the end;

and after the line referenced to 18 U.S.C. Sec.  113(a)(7) by inserting 
the following new line reference:

``18 U.S.C. Sec.  113(a)(8) 2A2.2 [, 2A6.2]''.

Issues for Comment:

    1. Offenses Involving Strangulation, Suffocation, or Attempting to 
Strangle or Suffocate Under Section 113(a)(8). In light of the new 
offense at section 113(a)(8) made by the Act, a defendant who commits 
an assault of a spouse, intimate partner, or dating partner (as defined 
by the statute) by strangling, suffocating, or attempting to strangle 
or suffocate may be prosecuted under section 113 with a statutory 
maximum term of imprisonment of 10 years.
    The Commission seeks comment on how, if at all, the guidelines 
should be amended to address cases involving strangling, suffocating, 
or attempting to strangle or suffocate. Are the existing provisions in 
the guidelines, such as the enhancements for bodily injury, adequate to 
address these cases? If not, how should the Commission amend the 
guidelines to address this factor?
    In particular, should the Commission provide a new enhancement of 
[3]-[7] levels that applies if the offense involves strangling, 
suffocating, or attempting to strangle or suffocate? If so, how should 
such an enhancement interact with the existing enhancements, such as 
the weapon enhancement and the bodily injury enhancement? For example, 
should the new enhancement be cumulative with those enhancements, or 
should it interact with those enhancements in some other way, e.g., by 
applying only if the bodily injury enhancement does not apply, or by 
establishing a ``cap'' of [10]-[12] levels on its cumulative impact 
with those enhancements?
    In addition, should such a new enhancement apply only to cases 
described in the statute (i.e., cases in which the victim was a spouse, 
intimate partner, or dating partner), or should it apply to any cases 
involving strangling, suffocating, or attempting to strangle or 
suffocate?
    Finally, should the new offense be referenced in Appendix A 
(Statutory Index) to the aggravated assault guideline, to the domestic 
violence guideline, or to both guidelines? To the extent the offense is 
referenced to the domestic violence guideline, how, if it all, should 
that guideline be amended to address cases involving strangling, 
suffocating, or attempting to strangle or suffocate?
    2. Supervised Release. The Commission seeks comment on the 
imposition of supervised release in cases involving domestic violence, 
e.g., cases in which the defendant was convicted of an assault offense 
or a domestic violence or stalking offense. Section 5D1.1 (Imposition 
of a Term of Supervised Release) requires the court to impose a term of 
supervised release only when required by statute or when a sentence of 
imprisonment of more than one year is imposed. Should the Commission 
provide additional guidance on the imposition of supervised release (or 
on the length of a term of supervised release) in cases involving 
domestic violence? How, if at all, should the Commission amend the 
guidelines to address the imposition of supervised release in such 
cases?
    3. Assault With Intent to Commit Certain Sex Offenses Under Section 
113(a)(1) and (2). In light of the changes to section 113(a)(1) and (2) 
made by the Act, a defendant who commits an assault with intent to 
commit certain sex offenses may now be prosecuted under section 113.
    The Commission invites comment on offenses involving an assault 
with intent to commit a sex offense (as described in section 113(a)(1) 
and (2)) and how the guidelines should address such offenses. In 
particular:
    (A) To what extent should an assault with intent to commit a sex 
offense be treated by the guidelines as a type of assault, and to what 
extent as a type of attempted sex offense? For example, the proposed 
amendment would amend Appendix A (Statutory Index) to provide 
references to one or more sex offense guidelines. Should the Commission 
instead, or in addition, provide references to one or more assault 
guidelines?
    To the extent offenses under section 113(a)(1) and (2) are 
referenced to one or more sex offense guidelines, what changes, if any, 
to those guidelines would be appropriate to account for offenses under 
section 113(a)(1) and (2)?
    Likewise, to the extent offenses under section 113(a)(1) and (2) 
are referenced to one or more assault guidelines, what changes, if any, 
to those guidelines would be appropriate to account for offenses under 
section 113(a)(1) and (2)? For example, should the Commission provide a 
new enhancement of [2][4][6] levels to account for an assault with an 
intent to commit a sex offense, or should the Commission provide a 
cross reference to one or more sex offense guidelines, or both?
    (B) There are a variety of provisions in the guidelines that apply 
when the conduct involves a sex offense or

[[Page 3286]]

attempted sex offense. To what extent should these provisions also 
apply when the conduct involves an assault with intent to commit a sex 
offense? How, if at all, should the Commission amend the guidelines to 
clarify whether or not these provisions apply when the conduct involves 
an assault with intent to commit a sex offense? For example:
    (1) Under Sec.  2A3.2 (Criminal Sexual Abuse of a Minor Under the 
Age of Sixteen Years (Statutory Rape) or Attempt to Commit Such Acts), 
if the offense involved criminal sexual abuse or attempt to commit 
criminal sexual abuse (as defined in section 2241 or 2242), a cross 
reference to Sec.  2A3.1 applies. See Sec.  2A3.2(c)(1). If the offense 
involved assault with intent to commit criminal sexual abuse, should 
the cross reference also apply?
    Similar issues arise with the cross references in Sec. Sec.  
2A3.2(c)(2), 2A3.4(c)(1), 2G1.1(c)(1), and 2G1.3(c)(3). How, if at all, 
should they be revised?
    (2) Under Sec. Sec.  2A3.1 and 2A3.4 (Abusive Sexual Contact or 
Attempt to Commit Abusive Sexual Contact), if the offense involved 
``conduct described in'' section 2241(a) or (b) or 2242, an enhancement 
or a higher base offense level applies. See Sec. Sec.  2A3.1(b)(1), 
2A3.4(a). Should these provisions similarly apply if the offense 
involved an assault with intent to commit a violation of section 
2241(a) or (b) or 2242?
    Similar issues arise with the enhancements in Sec.  2G2.1(b)(2)(A) 
and (B) and the accompanying commentary. How, if at all, should they be 
revised?
    (3) Under Sec.  2A4.1 (Kidnapping, Abduction, Unlawful Restraint), 
if the victim was ``sexually exploited,'' an enhancement of 6 levels 
applies. See Sec.  2A4.1(b)(5). Application Note 3 defines ``sexually 
exploited'' to include ``offenses set forth in'' sections 2241-2244, 
2251, and 2421-2423. If the offense involved assault with intent to 
commit a sex offense under sections 2241-2244, should an enhancement of 
[6] levels also apply?
    Similar issues arise with the enhancements at Sec. Sec.  
2G2.2(b)(1), (3), and (5) and 2G2.6(b)(3), and the accompanying 
commentary. How, if at all, should they be revised?
    (4) Under Sec.  2J1.2(b)(1)(A), an enhancement applies if (among 
other things) the defendant was convicted under 18 U.S.C. Sec.  1001 
and the statutory maximum term of eight years' imprisonment applies 
because ``the matter relates to'' a sex offense under chapter 109A. If 
the matter relates to an assault with intent to commit such a sex 
offense, should this enhancement apply?
    (5) Under Sec.  4B1.5, certain provisions apply if the instant 
offense of conviction is a ``covered sex crime.'' That term is defined 
in Application Note 2 to include (among other things) an offense, 
perpetrated against a minor, under chapter 109A. If the offense 
involved an assault with intent to commit such an offense, should the 
definition of ``covered sex crime'' apply?
    (6) Under Sec.  5D1.2(b), certain provisions apply if the offense 
is a ``sex offense.'' That term is defined in Application Note 1 to 
include (among other things) an offense, perpetrated against a minor, 
under chapter 109A. If the offense involved an assault with intent to 
commit such an offense, should the definition of ``sex offense'' apply?
    Similar issues are presented in Sec. Sec.  5H1.6, 5K2.0(a)(1)(B) 
and (b), 5K2.13, 5K2.20(a), and 5K2.22. How, if at all, should these 
provisions be revised?

(B) 18 U.S.C. Sec.  1153 (Offenses Committed Within Indian country) 
(``Major Crimes Act'')

    Synopsis of Proposed Amendment: This part of the proposed amendment 
addresses changes to 18 U.S.C. Sec.  1153 (Offenses committed within 
Indian country), commonly referred to as the Major Crimes Act. The Act 
contains a list of offenses and specifies that any Indian who commits 
against the person or property of another Indian or other person any of 
the listed offenses shall be subject to the same law and penalties as 
all other persons committing any of those offenses, within the 
exclusive jurisdiction of the United States.
    Before enactment of the Act, the list of offenses in section 1153 
included only four categories of assault: assault with intent to commit 
murder, assault with a dangerous weapon, assault resulting in serious 
bodily injury, and assault against an individual who has not attained 
the age of 16 years. The Act expanded the list of assault offenses to 
include any felony assault under section 113.
    Offenses under section 1153 are referenced in Appendix A to 17 
guidelines to account for the various listed offenses. These 17 
guidelines include references to the three different guidelines 
(Sec. Sec.  2A2.1, 2A2.2, and 2A2.3) to which felony assaults under 
section 113 are currently referenced.
    Part A, above, would provide certain additional Appendix A 
references for offenses under section 113, including one possible 
reference not currently included among the 17 references for section 
1153 C a reference to Sec.  2A6.2. This part of the proposed amendment 
would similarly revise the Appendix A references for offenses under 
section 1153 by including the bracketed possibility of a reference to 
Sec.  2A6.2.
    An issue for comment is also included on 18 U.S.C. Sec.  1152, 
commonly known as the General Crimes Act, and whether the Appendix A 
reference to Sec.  2B1.5 is appropriate.
Proposed Amendment
    Appendix A (Statutory Index) is amended in the line referenced to 
18 U.S.C. Sec.  1153 by inserting after Sec.  2A4.1,'' the following: 
``[2A6.2,]''.
Issue for Comment
    1. The Commission seeks comment on offenses under 18 U.S.C. Sec.  
1152, commonly known as the General Crimes Act. Section 1152 generally 
provides that the general laws of the United States as to the 
punishment of offenses committed in any place within the sole and 
exclusive jurisdiction of the United States shall extend to the Indian 
country.
    Section 1152 is referenced in Appendix A (Statutory Index) to a 
single guideline, Sec.  2B1.5 (Theft of, Damage to, or Destruction of, 
Cultural Heritage Resources or Paleontological Resources; Unlawful 
Sale, Purchase, Exchange, Transportation, or Receipt of Cultural 
Heritage Resources or Paleontological Resources).
    The Commission seeks comment on what, if any, Appendix A references 
are appropriate for offenses under section 1152. Is the reference to 
Sec.  2B1.5 appropriate? Should the Commission provide additional 
Appendix A references for section 1152 and, if so, to which guidelines? 
In the alternative, are Appendix A references unnecessary for section 
1152 and, if so, should the Commission delete section 1152 from 
Appendix A?

(C) 18 U.S.C. Sec. Sec.  2261, 2261A, 2262 (Domestic Violence and 
Stalking)

    Synopsis of Proposed Amendment: This part of the proposed amendment 
addresses statutory changes to 18 U.S.C. Sec. Sec.  2261 (Interstate 
domestic violence), 2261A (Stalking), and 2262 (Interstate violation of 
protection order). Statutory changes to these provisions were made by 
Public Law 109B162 in 2006 and were expanded and restated by Section 
107 of the Act. The proposed amendment amends the Commentary to Sec.  
2A6.2 to reflect these statutory changes.
    Before these statutory changes, these offenses generally required 
as a jurisdictional element of the offense that the defendant travel in 
interstate or foreign commerce or into or out of Indian country or 
within the special

[[Page 3287]]

maritime and territorial jurisdiction of the United States or, in the 
case of a stalking offense under section 2261A(2), that the defendant 
use the mail or any facility of interstate or foreign commerce. As a 
result of the statutory changes, the jurisdictional element may instead 
be met by presence in the special maritime and territorial jurisdiction 
of the United States or, in the case of a stalking offense under 
section 2261A(2), by using an interactive computer service, electronic 
communication service, or electronic communication system. The proposed 
amendment revises the definition of ``stalking'' in the Commentary to 
Sec.  2A6.2 to conform to these statutory changes.
    These statutory changes have also expanded and restated the 
elements of stalking offenses under section 2261A to cover a broader 
range of conduct. As a result of these statutory changes, section 2261A 
has been extended to cover placing a person under surveillance with 
intent to kill, injure, harass, or intimidate; and conduct that causes, 
attempts to cause, or would be reasonably expected to cause substantial 
emotional distress. The proposed amendment expands the definition of 
``stalking'' in the Commentary to Sec.  2A6.2 to reflect the expanded 
conduct covered by these statutory changes to section 2261A.
Proposed Amendment
    The Commentary to Sec.  2A6.2 captioned ``Application Notes'' is 
amended in Note 1 by striking the paragraph that begins `` `Stalking' 
means'' and inserting the following new paragraph:

`` `Stalking' means conduct described in 18 U.S.C. Sec.  2261A.''

(D) 8 U.S.C. Sec.  1375a(d) (Regulation of International Marriage 
Brokers)

    Synopsis of Proposed Amendment: This part of the proposed amendment 
addresses statutory changes made by the Act to 8 U.S.C. Sec.  1375a 
(Domestic violence information and resources for immigrants and 
regulation of international marriage brokers).
    The Act revised and strengthened the regulation of international 
marriage brokers. Among other things, such marriage brokers are 
required to collect certain information about the United States client 
and are restricted from disclosing certain information about children 
and foreign national clients. A broker who knowingly violates or 
attempts to violate these provisions is subject to a maximum term of 
imprisonment of five years. See section 1375a(d)(5)(B)(i)(II). If the 
violation is not a knowing violation, the maximum term of imprisonment 
is one year. See section 1375a(d)(5)(B)(i)(I).
    The Act also contains two other criminal provisions. First, a 
person who misuses information obtained by an international marriage 
broker is subject to a maximum term of imprisonment of one year. See 
section 1375a(d)(5)(B)(ii). Second, a person who knowingly and with 
intent to defraud another person outside the United States in order to 
recruit, solicit, entice, or induce that other person into entering a 
dating or matrimonial relationship, makes false or fraudulent 
representations regarding the background information required to be 
provided to an international marriage broker is subject to a maximum 
term of imprisonment of one year. See section 1375a(d)(5)(B)(iii).
    Before enactment of the Act, criminal provisions in section 1375a 
were set forth in subsection (d)(3)(C) and in subsection (d)(5)(B). 
These criminal provisions are referenced in Appendix A (Statutory 
Index) to Sec.  2H3.1 (Interception of Communications; Eavesdropping; 
Disclosure of Certain Private or Protected Information). The Act 
revised and reorganized these criminal provisions such that all 
criminal provisions are set forth in subsection (d)(5)(B), as described 
above.
    The proposed amendment responds to these changes by revising the 
Appendix A references for offenses under section 1375a(d). The 
reference for subsection (d)(3)(C) is deleted as obsolete. Offenses 
under subsection (d)(5)(B)(i) and (ii) continue to be referenced to 
Sec.  2H3.1. Offenses under subsection (d)(5)(B)(iii) are referenced to 
Sec.  2B1.1 (Theft, Property Destruction, and Fraud).
Proposed Amendment
    Appendix A (Statutory Index) is amended by striking the line 
referenced to 8 U.S.C. Sec.  1375a(d)(3)(C), (d)(5)(B) and inserting 
the following new line references:

``8 U.S.C. Sec.   1375a(d)(5)(B)(i)                                2H3.1
8 U.S.C. Sec.   1375a(d)(5)(B)(ii)                                 2H3.1
8 U.S.C. Sec.   1375a(d)(5)(B)(iii)                             2B1.1''.
 

(E) 47 U.S.C. Sec.  223 (Obscene or Harassing Telephone Calls)

    Synopsis of Proposed Amendment: This part of the proposed amendment 
addresses offenses under 47 U.S.C. Sec.  223 (Obscene or harassing 
telephone calls in the District of Columbia or in interstate or foreign 
communications), which were modified by the Act.
    Section 223(a) sets forth a range of prohibited acts involving 
communication that is obscene or that is made with intent to harass, or 
both. A person who commits any of these acts is subject to a maximum 
term of imprisonment of two years. Among other things, the Act 
clarified that communication with the intent to annoy is not prohibited 
by section 223(a). Three of the prohibited acts in section 223(a) are 
referenced in Appendix A (Statutory Index) to Sec.  2A6.1 (Threatening 
or Harassing Communications; Hoaxes; False Liens).
    Other prohibited acts in section 223(a) are not referenced in 
Appendix A. The proposed amendment provides Appendix A references for 
these offenses.
    Subsection (a)(1)(A) prohibits a communication that is obscene or 
child pornography, with intent to abuse, threaten, or harass another 
person. The proposed amendment references this offense to any one or 
more of three bracketed options:
    Sec.  2A6.1 (Threatening or Harassing Communications; Hoaxes; False 
Liens);
    Sec.  2G2.2 (Trafficking in Material Involving the Sexual 
Exploitation of a Minor; Receiving, Transporting, Shipping, Soliciting, 
or Advertising Material Involving the Sexual Exploitation of a Minor; 
Possessing Material Involving the Sexual Exploitation of a Minor with 
Intent to Traffic; Possessing Material Involving the Sexual 
Exploitation of a Minor); and
    Sec.  2G3.1 (Importing, Mailing, or Transporting Obscene Matter; 
Transferring Obscene Matter to a Minor; Misleading Domain Names).
    Subsection (a)(1)(B) prohibits a communication that is obscene or 
child pornography, knowing that the recipient of the communication is 
under 18 years of age. The proposed amendment references this offense 
to either or both of two bracketed options: Sec. Sec.  2G2.2 and 2G3.1.
    Subsection (a)(2) prohibits a person from knowingly permitting a 
telecommunications facility under his control to be used for any 
activity covered by subsection (a)(1). The proposed amendment 
references this offense to any one or more of three bracketed options: 
Sec. Sec.  2A6.1, 2G2.2, and 2G3.1.
Proposed Amendment
    Appendix A (Statutory Index) is amended by inserting before the 
line referenced to 47 U.S.C. Sec.  223(a)(1)(C) the following new line 
references:

``47 U.S.C. Sec.   223(a)(1)(A)...........  [2A6.1][2G2.2][2G3.1]
47 U.S.C. Sec.   223(a)(1)(B).............  [2G2.2][2G3.1]'';
 

and by inserting after the line referenced to 47 U.S.C. Sec.  
223(a)(1)(E) the following new line reference:

``47 U.S.C. Sec.   223(a)(2)..............  [2A6.1][2G2.2][2G3.1]''.
 


[[Page 3288]]

(F) 18 U.S.C. Sec.  2423 (Transportation of Minors)

    Synopsis of Proposed Amendment: This part of the proposed amendment 
addresses offenses under 18 U.S.C. Sec.  2423 (Transportation of 
minors), which were modified by the Act.
    Section 2423 contains four offenses, each of which prohibit sexual 
conduct with minors.
    Subsection (a) prohibits transporting a minor with intent that the 
minor engage in prostitution or criminal sexual activity. It provides a 
mandatory minimum term of imprisonment of 10 years and maximum of life. 
It is referenced in Appendix A (Statutory Index) to Sec.  2G1.3 
(Promoting a Commercial Sex Act or Prohibited Sexual Conduct with a 
Minor; Transportation of Minors to Engage in a Commercial Sex Act or 
Prohibited Sexual Conduct; Travel to Engage in Commercial Sex Act or 
Prohibited Sexual Conduct with a Minor; Sex Trafficking of Children; 
Use of Interstate Facilities to Transport Information about a Minor).
    Subsection (b) prohibits traveling in interstate or foreign 
commerce for the purpose of ``illicit sexual conduct,'' which is 
defined in subsection (f) to mean a criminal sexual act with a minor. 
It provides a statutory maximum term of imprisonment of 30 years. It is 
referenced in Appendix A to Sec.  2G1.3.
    Subsection (c) prohibits traveling in foreign commerce and engaging 
in ``illicit sexual conduct''. The Act expanded this provision to also 
cover residing in a foreign country and engaging in ``illicit sexual 
conduct''. It provides a statutory maximum term of imprisonment of 30 
years. It is not referenced in Appendix A. The proposed amendment would 
amend Appendix A to reference section 2423(c) to Sec.  2G1.3.
    Subsection (d) prohibits any person from, for the purpose of 
commercial advantage or private financial gain, arranging, inducing, 
procuring, or facilitating the travel of a person for ``illicit sexual 
conduct''. It provides a statutory maximum term of imprisonment of 30 
years. It is not referenced in Appendix A. The proposed amendment would 
amend Appendix A to reference section 2423(d) to Sec.  2G1.3.
Proposed Amendment
    Appendix A (Statutory Index) is amended by inserting after the line 
referenced to 18 U.S.C. Sec.  2423(b) the following new line 
references:

``18 U.S.C. Sec.  2423(c) 2G1.3
18 U.S.C. Sec.  2423(d) 2G1.3''.

(G) 18 U.S.C. Sec.  1597 (Unlawful Conduct With Respect to Immigration 
Documents)

    Synopsis of Proposed Amendment: This part of the proposed amendment 
responds to the new Class A misdemeanor established by the Act in 
Chapter 77 (Peonage, Slavery, and Trafficking in Persons) of title 18. 
This new offense, at 18 U.S.C. Sec.  1597(a), makes it unlawful for any 
person to knowingly destroy, conceal, remove, confiscate, or possess, 
an actual or purported passport or other immigration document of 
another individual--
    (1) in the course of violating 18 U.S.C. Sec.  1351 (Fraud in 
foreign labor contracting) or 8 U.S.C. Sec.  1324 (Bringing in and 
harboring certain aliens);
    (2) with intent to violate 18 U.S.C. Sec.  1351 or 8 U.S.C. Sec.  
1324; or
    (3) in order to, without lawful authority, maintain, prevent, or 
restrict the labor or services of the individual.
    In addition, section 1597(c) prohibits knowingly obstructing, 
attempting to obstruct, or in any way interfering with or preventing 
the enforcement of this section. Section 1597 provides a statutory 
maximum term of imprisonment of one year.
    The proposed amendment references this offense to any one or more 
of four bracketed options:
    Sec.  2B1.1 (Theft, Property Destruction, and Fraud);
    Sec.  2H4.1 (Peonage, Involuntary Servitude, Slave Trade, and Child 
Soldiers);
    Sec.  2L1.1 (Smuggling, Transporting, or Harboring an Unlawful 
Alien); and
    Sec.  2L2.2 (Fraudulently Acquiring Documents Relating to 
Naturalization, Citizenship, or Legal Resident Status for Own Use; 
False Personation or Fraudulent Marriage by Alien to Evade Immigration 
Law; Fraudulently Acquiring or Improperly Using a United States 
Passport).
    An issue for comment is also included.
Proposed Amendment
    Appendix A (Statutory Index) is amended by inserting after the line 
referenced to 18 U.S.C. Sec.  1593A the following new line reference:

``18 U.S.C. Sec.  1597 [2B1.1] [2H4.1][2L1.1][2L2.2]''.
Issue for Comment
    1. The Commission seeks comment on offenses under section 1597. 
What guideline or guidelines are appropriate for these offenses? Which, 
if any, of the bracketed options in the proposed amendment should the 
Commission provide? Should the Commission instead provide for such 
offenses to be sentenced under Sec.  2X5.2 (Class A Misdemeanors (Not 
Covered by Another Specific Offense Guideline))?
    To the extent the Commission does provide a reference to one or 
more guidelines, what changes, if any, to those guidelines would be 
appropriate to account for offenses under section 1597? For example, to 
the extent such offenses are referenced to Sec.  2H4.1, should the 
Commission provide a new alternative base offense level for offenses 
under section 1597 to account for the fact that such offenses are Class 
A misdemeanors? What alternative base offense level would be 
appropriate?

3. Drugs

    Synopsis of Proposed Amendment: In August 2013, the Commission 
indicated that one of its policy priorities would be ``[r]eview, and 
possible amendment, of guidelines applicable to drug offenses, 
including possible consideration of amending the Drug Quantity Table in 
Sec.  2D1.1 (Unlawful Manufacturing, Importing, Exporting, or 
Trafficking (Including Possession with Intent to Commit These 
Offenses); Attempt or Conspiracy) across drug types''. See 78 FR 51820 
(August 21, 2013). The Commission is publishing this proposed amendment 
and issue for comment to inform the Commission's consideration of these 
issues.
    The proposed amendment contains three parts. Part A contains a 
detailed request for comment on whether any changes should be made to 
the Drug Quantity Table across drug types, including whether any other 
changes may be appropriate. Part B contains a proposed amendment that 
illustrates one possible set of changes to the Drug Quantity Table 
(together with conforming changes to the chemical quantity tables and 
certain clerical changes). Part C contains an issue for comment on 
whether the guidelines adequately address the environmental and other 
harms of drug production operations (including, in particular, the 
cultivation of marihuana) on public lands or while trespassing on 
private property.

(A) Request for Public Comment on Whether Any Changes Should Be Made to 
the Drug Quantity Table Across Drug Types, and Other Possible Changes

Issue for Comment
    1. The Commission is requesting comment on whether any changes 
should be made to the Drug Quantity Table across drug types.
    Penalty Structure of Federal Drug Laws. The penalty structure of 
the Drug

[[Page 3289]]

Quantity Table is based on the penalty structure of federal drug laws 
for most major drug types. That penalty structure generally establishes 
several tiers of penalties for manufacturing and trafficking in 
controlled substances, each based on the amount of controlled 
substances involved. See generally 21 U.S.C. Sec.  841(b)(1)(A), (B), 
(C), 960(b)(1), (2), (3).
    Generally, for smaller quantities of drugs, the statutory maximum 
term of imprisonment is 20 years. See 21 U.S.C. Sec.  841(b)(1)(C). For 
quantities of marihuana less than 50 kilograms, the statutory maximum 
term of imprisonment is 5 years. See 21 U.S.C. Sec.  841(b)(1)(D). If 
certain aggravating factors are present (e.g., if the defendant had a 
prior conviction for a felony drug offense, see 21 U.S.C. Sec.  
841(b)(1)(C), (D), or if death or serious bodily injury results from 
the use of the substance, see 21 U.S.C. Sec.  841(b)(1)(C)), higher 
statutory penalties apply.
    If the amount of the controlled substance reaches a statutorily 
specified quantity, the statutory maximum term increases to 40 years, 
and a statutory minimum term of 5 years applies. See 21 U.S.C. Sec.  
841(b)(1)(B). If the amount of the controlled substance reaches ten 
times that specified quantity, the statutory maximum term is life, and 
a statutory minimum term of 10 years applies. See 21 U.S.C. Sec.  
841(b)(1)(A). If certain aggravating factors are present (e.g., if the 
defendant had one or more prior convictions for a felony drug offense, 
or if death or serious bodily injury results from the use of the 
substance), higher statutory penalties apply. See 21 U.S.C. Sec.  
841(b)(1)(A), (B).
    Framework of the Federal Sentencing Guidelines. The Sentencing 
Reform Act of 1984 established the Commission's organic statute and 
provided that the Commission, ``consistent with all pertinent 
provisions of any Federal statute,'' shall promulgate guidelines and 
policy statements. See 28 U.S.C. Sec.  994(a). It also provided that 
the Commission shall establish a sentencing range ``for each category 
of offense involving each category of defendant''. See 28 U.S.C. Sec.  
994(b)(1). Each sentencing range must be ``consistent with all 
pertinent provisions of title 18, United States Code''. See 28 U.S.C. 
Sec.  994(b)(1). Where the guidelines call for imprisonment, the 
maximum of the range cannot exceed the minimum by more than the greater 
of 25 percent or six months. See 28 U.S.C. Sec.  994(b)(2).
    In addition, the Commission's organic statute contains a variety of 
directives to the Commission in promulgating the sentencing guidelines. 
Among other things, the Commission must ensure that the sentencing 
guidelines are ``formulated to minimize the likelihood that the Federal 
prison population will exceed the capacity of the Federal prisons.'' 
See 28 U.S.C. Sec.  994(g). Thus, ``[p]ursuant to 28 U.S.C. Sec.  
994(g), the Commission intends to consider the issue of reducing costs 
of incarceration and overcapacity of prisons, to the extent it is 
relevant to any identified priority.'' See 78 FR 51820 (August 21, 
2013).
    Incorporation of Statutory Penalties into Drug Quantity Table. The 
Commission has incorporated into the Drug Quantity Table the penalty 
structure of federal drug laws and the relevant statutory mandatory 
minimum sentences and has extrapolated upward and downward to set 
guideline sentencing ranges for all drug quantities. See Sec.  2D1.1, 
comment. (backg'd.) (``The base offense levels in Sec.  2D1.1 are 
either provided directly by the Anti-Drug Abuse Act of 1986 or are 
proportional to the levels established by statute, and apply to all 
unlawful trafficking.''). By extrapolating upward and downward, the 
guidelines avoid sharp differentials or ``sentencing cliffs'' based 
upon small differences in drug quantities.
    The drug quantity thresholds in the Drug Quantity Table have 
generally been set so that the drug quantity that triggers a statutory 
mandatory minimum penalty also triggers a base offense level that 
corresponds (at Criminal History Category I) to a guideline range 
slightly above the statutory mandatory minimum penalty. Thus, the 
quantity that triggers a statutory 5-year mandatory minimum term of 
imprisonment also triggers a base offense level of 26 (corresponding to 
a guideline range of 63 to 78 months), and the quantity that triggers a 
statutory 10-year mandatory minimum term of imprisonment also triggers 
a base offense level of 32 (corresponding to a guideline range of 121 
to 151 months). See Sec.  2D1.1, comment. (backg'd.) (``The base 
offense levels at levels 26 and 32 establish guideline ranges with a 
lower limit as close to the statutory minimum as possible; e.g., level 
32 ranges from 121 to 151 months, where the statutory minimum is ten 
years or 120 months.''). The Commission has stated that ``[t]he base 
offense levels are set at guideline ranges slightly higher than the 
mandatory minimum levels to permit some downward adjustment for 
defendants who plead guilty or otherwise cooperate with authorities.'' 
See United States Sentencing Commission, Special Report to Congress: 
Cocaine and Federal Sentencing Policy (February 1995) at 148.
    A minimum offense level of 6 and a maximum offense level of 38 are 
incorporated into the Drug Quantity Table across all drug types. In 
addition, certain higher minimum offense levels are incorporated into 
the Drug Quantity Table for particular drug types, e.g., a minimum 
offense level of 12 applies if the offense involved any quantity of 
certain Schedule I or II controlled substances. See, e.g., Sec.  
2D1.1(c)(14); Sec.  2D1.1, comment. (n.8(D)) (``Provided, that the 
minimum offense level from the Drug Quantity Table for any of these 
controlled substances individually, or in combination with another 
controlled substance, is level 12.''). Similarly, certain maximum 
offense levels and associated drug quantity ``caps'' are incorporated 
into the Drug Quantity Table for particular drug types, e.g., a maximum 
offense level of 8 and a combined equivalent weight ``cap'' of 999 
grams of marihuana apply if the offense involved any quantity of 
Schedule V substances. See, e.g., Sec.  2D1.1(c)(16); Sec.  2D1.1, 
comment. (n.8(D)) (``Provided, that the combined equivalent weight of 
Schedule V substances shall not exceed 999 grams of marihuana.'').
    Guideline Developments. Since the initial selection of offense 
levels 26 and 32, the guidelines have been amended many times -- often 
in response to congressional directives -- to provide greater emphasis 
on the defendant's conduct and role in the offense rather than drug 
quantity. The version of Sec.  2D1.1 in the original 1987 Guidelines 
Manual contained a single specific offense characteristic: a 2-level 
enhancement if a firearm or other dangerous weapon was possessed. The 
version of Sec.  2D1.1 now in effect contains fourteen enhancements and 
three downward adjustments (including the ``mitigating role cap'' 
provided in subsection (a)(5)), with four enhancements and one downward 
adjustment added effective November 1, 2010, in response to the 
emergency directive in the Fair Sentencing Act of 2010, Public Law 111-
220.
    The ``Safety Valve''. Also since the initial selection of offense 
levels 26 and 32, Congress has enacted the ``safety valve,'' which 
applies to certain non-violent drug defendants and allows the court, 
without any government motion, to impose a sentence below a statutory 
mandatory minimum penalty if the court finds, among other things, that 
the defendant ``has truthfully provided to the Government all 
information and evidence the defendant has concerning the offense or 
offenses that were part of the same course of conduct or of a common 
scheme or plan''. See 18 U.S.C.

[[Page 3290]]

 Sec.  3553(f). This statutory provision was established by Congress in 
1994 and is incorporated into the guidelines at USSG Sec.  5C1.2 
(Limitation on Applicability of Statutory Minimum Sentences in Certain 
Cases). In addition, Sec.  2D1.1(b)(16) provides a 2-level reduction in 
the defendant's offense level if the defendant meets the ``safety 
valve'' criteria, regardless of whether a mandatory minimum penalty 
applies in the case. In the case of a defendant for whom the 
statutorily required minimum sentence is at least five years, the 
guidelines provide an offense level of not less than 17. See Sec.  
5G1.2 (Limitation on Applicability of Statutory Minimum Sentences in 
Certain Cases).
    Because the ``safety valve'' was established after the initial 
selection of levels 26 and 32, its effect on plea rates and cooperation 
could not have been foreseen at that time. Commission data indicate 
that defendants charged with a mandatory minimum penalty are more 
likely to plead guilty if they qualify for the ``safety valve'' than if 
they do not. Specifically, in fiscal year 2012, drug trafficking 
defendants charged with a mandatory minimum penalty had a plea rate of 
99.6 percent if they qualified for the ``safety valve'' and a plea rate 
of 93.9 percent if they did not.
    Crack Cocaine Cases After the 2007 Amendment. In 2007, the 
Commission amended the Drug Quantity Table for cocaine base (``crack'' 
cocaine) so that the quantities that trigger mandatory minimum 
penalties also trigger base offense levels 24 and 30, rather than 26 
and 32. See USSG App. C, Amendment 706 (effective November 1, 2007). At 
base offense level 24, the guideline range for a defendant in Criminal 
History Category I is 51 to 63 months, which includes the corresponding 
mandatory minimum penalty of 5 years (60 months); at base offense level 
30, the guideline range for such a defendant is 97 to 121 months, which 
includes the corresponding mandatory minimum penalty of 10 years (120 
months). In 2010, in implementing the emergency directive in section 8 
of the Fair Sentencing Act of 2010, the Commission moved crack cocaine 
offenses back to a guideline penalty structure based on levels 26 and 
32.
    During the period when crack cocaine offenses had a guideline 
penalty structure based on levels 24 and 30, the overall rates at which 
crack cocaine defendants pled guilty remained stable. Specifically, in 
the fiscal year before the 2007 amendment took effect, the plea rate 
for crack cocaine defendants was 93.1 percent. In the two fiscal years 
after the 2007 amendment took effect, the plea rates for such 
defendants were 95.2 percent and 94.0 percent, respectively.
    For those same fiscal years, the overall rates at which crack 
cocaine defendants received substantial assistance departures under 
Sec.  5K1.1 (Substantial Assistance to Authorities) were 27.8 percent 
in the fiscal year before the 2007 amendment took effect and 25.3 
percent and 25.6 percent in the two fiscal years after the 2007 
amendment took effect.
    In light of this information, the Commission seeks comment on 
whether the Commission should consider changing how the base offense 
levels in the Drug Quantity Table incorporate the statutory mandatory 
minimum penalties and, if so, how? For example, should the Commission 
amend the Drug Quantity Table across drug types so that the quantities 
that trigger the statutory mandatory minimum penalties trigger base 
offense levels 24 and 30, rather than 26 and 32?
    If the Commission were to amend the Drug Quantity Table across drug 
types, are there any circumstances that should be wholly or partially 
excluded from such an amendment? If so, what circumstances? For 
example, if the Commission were to determine that a guideline penalty 
structure based on levels 24 and 30, rather than based on levels 26 and 
32, is appropriate, should any existing specific offense 
characteristics be increased, or any new specific offense 
characteristics be promulgated, to offset any such change for certain 
offenders?
    If the Commission were to make changes to the guidelines applicable 
to drug trafficking cases, what conforming changes, if any, should the 
Commission make to other provisions of the Guidelines Manual?

(B) Proposed Amendment

    Synopsis of Proposed Amendment: This proposed amendment changes how 
the base offense levels in the Drug Quantity Table incorporate the 
statutory mandatory minimum penalties. Specifically, it amends the 
table so that the quantities that trigger the statutory mandatory 
minimum penalties trigger base offense levels 24 and 30, rather than 26 
and 32. As described more fully in Part A, above, setting base offense 
levels at levels 24 and 30 establishes guideline ranges with a lower 
limit below, and an upper limit above, the statutory minimum; e.g., 
level 30 corresponds (at Criminal History Category I) to a guideline 
range of 97 to 121 months, where the statutory minimum term is ten 
years or 120 months.
    Under the proposed amendment, Sec.  2D1.1 would continue to reflect 
the minimum offense level of 6 and the maximum offense level of 38 that 
are incorporated into the Drug Quantity Table across all drug types. It 
also would continue to reflect the minimum offense levels that are 
incorporated into the Drug Quantity Table for particular drug types, 
e.g., the minimum offense level of 12 that applies if the offense 
involved any quantity of certain Schedule I or II controlled 
substances. See, e.g., Sec.  2D1.1(c)(14); Sec.  2D1.1, comment. 
(n.8(D)) (``Provided, that the minimum offense level from the Drug 
Quantity Table for any of these controlled substances individually, or 
in combination with another controlled substance, is level 12.''). 
Similarly, it would continue to reflect the maximum offense levels and 
associated drug quantity ``caps'' that are incorporated into the Drug 
Quantity Table for particular drug types, e.g., the maximum offense 
level of 8 and the combined equivalent weight ``cap'' of 999 grams of 
marihuana that apply if the offense involved any quantity of Schedule V 
substances. See, e.g., Sec.  2D1.1(c)(16); Sec.  2D1.1, comment. 
(n.8(D)) (``Provided, that the combined equivalent weight of Schedule V 
substances shall not exceed 999 grams of marihuana.'').
    In the proposed amendment the various minimum and maximum offense 
levels and drug quantity ``caps'' are associated with new drug 
quantities, determined by extrapolating upward or downward as 
appropriate.
    The proposed amendment makes parallel changes to the quantity 
tables in Sec.  2D1.11, which apply to offenses involving the chemical 
precursors of controlled substances. Section 2D1.11 is generally 
structured to provide base offense levels that are tied to, but less 
severe than, the base offense levels in Sec.  2D1.1 for offenses 
involving the final product.
    Finally, the proposed amendment makes certain clerical and 
conforming changes to reflect the changes to the quantity tables.
Proposed Amendment
    Section 2D1.1(c) is amended by striking paragraph (17); by 
redesignating paragraphs (1) through (16) as paragraphs (2) through 
(17), respectively; and by inserting before paragraph (2) (as so 
redesignated) the following new paragraph (1):

Level 38

    ``(1)  [90] KG or more of Heroin;
     [450] KG or more of Cocaine;
     [25.2] KG or more of Cocaine Base;

[[Page 3291]]

     [90] KG or more of PCP, or [9] KG or more of PCP (actual);
     [45] KG or more of Methamphetamine, or
    [4.5] KG or more of Methamphetamine (actual), or
    [4.5] KG or more of `Ice';
     [45] KG or more of Amphetamine, or
    [4.5] KG or more of Amphetamine (actual);
     [900] G or more of LSD;
     [36] KG or more of Fentanyl;
     [9] KG or more of a Fentanyl Analogue;
     [90,000] KG or more of Marihuana;
     [18,000] KG or more of Hashish;
     [1,800] KG or more of Hashish Oil;
     [90,000,000] units or more of Ketamine;
     [90,000,000] units or more of Schedule I or II 
Depressants;
     [5,625,000] units or more of Flunitrazepam.''.
    Section 2D1.1(c)(2) (as so redesignated) is amended to read as 
follows:

Level 36

    ``(2)  At least 30 KG but less than [90] KG of Heroin;
     At least 150 KG but less than [450] KG of Cocaine;
     At least 8.4 KG but less than [25.2] KG of Cocaine Base;
     At least 30 KG but less than [90] KG of PCP, or at least 3 
KG but less than [9] KG of PCP (actual);
     At least 15 KG but less than [45] KG of Methamphetamine, 
or
    at least 1.5 KG but less than [4.5] KG of Methamphetamine (actual), 
or
    at least 1.5 KG but less than [4.5] KG of `Ice';
     At least 15 KG but less than [45] KG of Amphetamine, or
    at least 1.5 KG but less than [4.5] KG of Amphetamine (actual);
     At least 300 G but less than [900] G of LSD;
     At least 12 KG but less than [36] KG of Fentanyl;
     At least 3 KG but less than [9] KG of a Fentanyl Analogue;
     At least 30,000 KG but less than [90,000] KG of Marihuana;
     At least 6,000 KG but less than [18,000] KG of Hashish;
     At least 600 KG but less than [1,800] KG of Hashish Oil;
     At least 30,000,000 units but less than [90,000,000] units 
of Ketamine;
     At least 30,000,000 units but less than [90,000,000] units 
of Schedule I or II Depressants;
     At least 1,875,000 units but less than [5,625,000 units] 
of Flunitrazepam.''.
    Section 2D1.1(c)(3) (as so redesignated) is amended by striking 
``Level 36'' and inserting ``Level 34''.
    Section 2D1.1(c)(4) (as so redesignated) is amended by striking 
``Level 34'' and inserting ``Level 32''.
    Section 2D1.1(c)(5) (as so redesignated) is amended by striking 
``Level 32'' and inserting ``Level 30''; and by inserting before the 
line referenced to Flunitrazepam the following:
    `` 1,000,000 units or more of Schedule III Hydrocodone;''.
    Section 2D1.1(c)(6) (as so redesignated) is amended by striking 
``Level 30'' and inserting ``Level 28''; and in the line referenced to 
Schedule III Hydrocode by striking ``700,000 or more'' and inserting 
``At least 700,000 but less than 1,000,000''.
    Section 2D1.1(c)(7) (as so redesignated) is amended by striking 
``Level 28'' and inserting ``Level 26''.
    Section 2D1.1(c)(8) (as so redesignated) is amended by striking 
``Level 26'' and inserting ``Level 24''.
    Section 2D1.1(c)(9) (as so redesignated) is amended by striking 
``Level 24'' and inserting ``Level 22''.
    Section 2D1.1(c)(10) (as so redesignated) is amended by striking 
``Level 22'' and inserting ``Level 20''; and by inserting before the 
line referenced to Flunitrazepam the following:
    `` 60,000 units or more of Schedule III substances (except 
Ketamine or Hydrocodone);''.
    Section 2D1.1(c)(11) (as so redesignated) is amended by striking 
``Level 20'' and inserting ``Level 18''; and in the line referenced to 
Schedule III substances (except Ketamine or Hydrocodone) by striking 
``40,000 or more'' and inserting ``At least 40,000 but less than 
60,000''.
    Section 2D1.1(c)(12) (as so redesignated) is amended by striking 
``Level 18'' and inserting ``Level 16''.
    Section 2D1.1(c)(13) (as so redesignated) is amended by striking 
``Level 16'' and inserting ``Level 14''.
    Section 2D1.1(c)(14) (as so redesignated) is amended by striking 
``Level 14'' and inserting ``Level 12''; by striking the line 
referenced to Heroin and all that follows through the line referenced 
to Fentanyl Analogue and inserting the following:
    `` Less than 10 G of Heroin;
     Less than 50 G of Cocaine;
     Less than 2.8 G of Cocaine Base;
     Less than 10 G of PCP, or
    less than 1 G of PCP (actual);
     Less than 5 G of Methamphetamine, or
    less than 500 MG of Methamphetamine (actual),
    or less than 500 MG of `Ice';
     Less than 5 G of Amphetamine, or
    less than 500 MG of Amphetamine (actual);
     Less than 100 MG of LSD;
     Less than 4 G of Fentanyl;
     Less than 1 G of a Fentanyl Analogue;'';

by striking the period at the end and inserting a semicolon; and by 
adding at the end the following:

    `` 80,000 units or more of Schedule IV substances (except 
Flunitrazepam).''.
    Section 2D1.1(c)(15) (as so redesignated) is amended by striking 
``Level 12'' and inserting ``Level 10''; by striking the line 
referenced to Heroin and all that follows through the line referenced 
to Fentanyl Analogue; and in the line referenced to Schedule IV 
substances (except Flunitrazepam) by striking ``40,000 or more'' and 
inserting ``At least 40,000 but less than 80,000''.
    Section 2D1.1(c)(16) (as so redesignated) is amended by striking 
``Level 10'' and inserting ``Level 8''; by striking ``At least 62 but 
less'' and inserting ``Less''; by striking the period at the end and 
inserting a semicolon; and by adding at the end the following:
    `` 160,000 units or more of Schedule V substances.''.
    Section 2D1.1(c)(17) (as so redesignated) is amended to read as 
follows:

Level 6

    ``(17)  Less than 1 KG of Marihuana;
     Less than 200 G of Hashish;
     Less than 20 G of Hashish Oil;
     Less than 1,000 units of Ketamine;
     Less than 1,000 units of Schedule I or II Depressants;
     Less than 1,000 units of Schedule III Hydrocodone;
     Less than 1,000 units of Schedule III substances (except 
Ketamine or Hydrocodone);
     Less than 16,000 units of Schedule IV substances (except 
Flunitrazepam);
     Less than 160,000 units of Schedule V substances.''.
    The Commentary to Sec.  2D1.1 captioned ``Application Notes'' is 
amended in Note 8(A) by striking ``28'' and inserting ``26'';

in Note 8(B) by striking ``999 grams'' and inserting ``2.49 
kilograms'';
in Note 8(C)(i) by striking ``22'' and inserting ``20'', by striking 
``18'' and inserting ``16'', and by striking ``24'' and inserting 
``22'';
in Note 8(C)(ii) by striking ``8'' both places such term appears and 
inserting ``6'', and by striking ``10'' and inserting ``8'';
in Note 8(C)(iii) by striking ``16'' and inserting ``14'', by striking 
``14'' and inserting ``12'', and by striking ``18'' and inserting 
``16'';
in Note 8(C)(iv) by striking ``56,000'' and inserting ``76,000'', by 
striking

[[Page 3292]]

``100,000'' and inserting ``200,000'', by striking ``200,000'' and 
inserting ``600,000'', by striking ``56'' and inserting ``76'', by 
striking ``59.99'' and inserting ``79.99'', by striking ``4.99'' and 
inserting ``9.99'', by striking ``6.25'' and inserting ``12.5'', by 
striking ``999 grams'' and inserting ``2.49 kilograms'', by striking 
``1.25'' and inserting ``3.75'', by striking ``59.99'' and inserting 
``79.99'', and by striking ``61.99 (56 + 4.99 + .999)'' and inserting 
``88.48 (76 + 9.99 + 2.49)'';
in Note 8(D), under the heading relating to Schedule III Substances 
(except ketamine and hydrocodone), by striking ``59.99'' and inserting 
``79.99''; under the heading relating to Schedule III Hydrocodone, by 
striking ``999.99'' and inserting ``2,999.99''; under the heading 
relating to Schedule IV Substances (except flunitrazepam) by striking 
``4.99'' and inserting ``9.99''; and under the heading relating to 
Schedule V Substances by striking ``999 grams'' and inserting ``2.49 
kilograms''.

    The Commentary to Sec.  2D1.1 captioned ``Background'' is amended 
in the paragraph that begins ``The base offense levels in Sec.  2D1.1'' 
by striking ``32 and 26'' and inserting ``30 and 24''; and by striking 
the paragraph that begins ``The base offense levels at levels 26 and 
32'' and inserting the following new paragraph:
    ``The base offense levels at levels 24 and 30 establish guideline 
ranges such that the statutory minimum falls within the range; e.g., 
level 30 ranges from 97 to 121 months, where the statutory minimum term 
is ten years or 120 months.''.
    The Commentary to Sec.  2D1.2 captioned ``Application Note'' is 
amended in Note 1 by striking ``16'' and inserting ``14'', and by 
striking ``17'' and inserting ``15''.
    Section 2D1.11(d) is amended by striking paragraph (14); by 
redesignating paragraphs (1) through (13) as paragraphs (2) through 
(14), respectively; and by inserting before paragraph (2) (as so 
redesignated) the following new paragraph (1):

Level 38

    ``(1) [9] KG or more of Ephedrine;
    [9] KG or more of Phenylpropanolamine;
    [9] KG or more of Pseudoephedrine.''
    Section 2D1.11(d)(2) (as so redesignated) is amended by striking 
``Level 38'' and inserting ``Level 36''; and by striking ``3 KG or 
more'' each place such term appears and inserting ``At least 3 KG but 
less than 9 KG''.
    Section 2D1.11(d)(3) (as so redesignated) is amended by striking 
``Level 36'' and inserting ``Level 34''.
    Section 2D1.11(d)(4) (as so redesignated) is amended by striking 
``Level 34'' and inserting ``Level 32''.
    Section 2D1.11(d)(5) (as so redesignated) is amended by striking 
``Level 32'' and inserting ``Level 30''.
    Section 2D1.11(d)(6) (as so redesignated) is amended by striking 
``Level 30'' and inserting ``Level 28''.
    Section 2D1.11(d)(7) (as so redesignated) is amended by striking 
``Level 28'' and inserting ``Level 26''.
    Section 2D1.11(d)(8) (as so redesignated) is amended by striking 
``Level 26'' and inserting ``Level 24''.
    Section 2D1.11(d)(9) (as so redesignated) is amended by striking 
``Level 24'' and inserting ``Level 22''.
    Section 2D1.11(d)(10) (as so redesignated) is amended by striking 
``Level 22'' and inserting ``Level 20''.
    Section 2D1.11(d)(11) (as so redesignated) is amended by striking 
``Level 20'' and inserting ``Level 18''.
    Section 2D1.11(d)(12) (as so redesignated) is amended by striking 
``Level 18'' and inserting ``Level 16''.
    Section 2D1.11(d)(13) (as so redesignated) is amended by striking 
``Level 16'' and inserting ``Level 14''.
    Section 2D1.11(d)(14) (as so redesignated) is amended by striking 
``Level 14'' and inserting ``Level 12''; and by striking ``At least 500 
MG but less'' each place such term appears and inserting ``Less''.
    Section 2D1.11(e) is amended by striking paragraph (10); by 
redesignating paragraphs (1) through (9) as paragraphs (2) through 
(10), respectively; and by inserting before paragraph (2) (as so 
redesignated) the following new paragraph (1):

Level 30

    ``(1) List I Chemicals
    [2.7 KG] or more of Benzaldehyde;
    [60] KG or more of Benzyl Cyanide;
    [600] G or more of Ergonovine;
    [1.2 KG] or more of Ergotamine;
    [60] KG or more of Ethylamine;
    [6.6] KG or more of Hydriodic Acid;
    [3.9] KG or more of Iodine;
    [960] KG or more of Isosafrole;
    [600] G or more of Methylamine;
    [1500] KG or more of N-Methylephedrine;
    [1500] KG or more of N-Methylpseudoephedrine;
    [1.9 KG] or more of Nitroethane;
    [30] KG or more of Norpseudoephedrine;
    [60] KG or more of Phenylacetic Acid;
    [30] KG or more of Piperidine;
    [960] KG or more of Piperonal;
    [4.8] KG or more of Propionic Anhydride;
    [960] KG or more of Safrole;
    [1200] KG or more of 3, 4-Methylenedioxyphenyl-2-propanone;
    [3406.5] L or more of Gamma-butyrolactone;
    [2.1 KG] or more of Red Phosphorus, White Phosphorus, or 
Hypophosphorous Acid.''.
    Section 2D1.11(e)(2) (as so redesignated) is amended to read as 
follows:

Level 28

    ``(1) List I Chemicals
    At least 890 G but less than 2.7 KG of Benzaldehyde;
    At least 20 KG but less than 60 KG of Benzyl Cyanide;
    At least 200 G but less than 600 G of Ergonovine;
    At least 400 G but less than 1.2 KG of Ergotamine;
    At least 20 KG but less than 60 KG of Ethylamine;
    At least 2.2 KG but less than 6.6 KG of Hydriodic Acid;
    At least 1.3 KG but less than 3.9 KG of Iodine;
    At least 320 KG but less than 960 KG of Isosafrole;
    At least 200 G but less than 600 G of Methylamine;
    At least 500 KG but less than 1500 KG of N-Methylephedrine;
    At least 500 KG but less than 1500 KG of N-Methylpseudoephedrine;
    At least 625 G but less than 1.9 KG of Nitroethane;
    At least 10 KG but less than 30 KG of Norpseudoephedrine;
    At least 20 KG but less than 60 KG of Phenylacetic Acid;
    At least 10 KG but less than 30 KG of Piperidine;
    At least 320 KG but less than 960 KG of Piperonal;
    At least 1.6 KG but less than 4.8 KG of Propionic Anhydride;
    At least 320 KG but less than 960 KG of Safrole;
    At least 400 KG but less than 1200 KG of 3, 4-Methylenedioxyphenyl-
2-propanone;
    At least 1135.5 L but less than 3406.5 L of Gamma-butyrolactone;
    At least 714 G but less than 2.1 KG of Red Phosphorus, White 
Phosphorus, or Hypophosphorous Acid.
    List II Chemicals
    33 KG or more of Acetic Anhydride;
    3525 KG or more of Acetone;
    60 KG or more of Benzyl Chloride;
    3225 KG or more of Ethyl Ether;
    3600 KG or more of Methyl Ethyl Ketone;
    30 KG or more of Potassium Permanganate;
    3900 KG or more of Toluene.''.
    Section 2D1.11(e)(3) (as so redesignated) is amended by striking 
``Level 28'' and inserting ``Level 26''; and by striking the line 
referenced to

[[Page 3293]]

Acetic Anhydride and all that follows through the line referenced to 
Toluene and inserting the following:
    ``At least 11 KG but less than 33 KG of Acetic Anhydride;
    At least 1175 KG but less than 3525 KG of Acetone;
    At least 20 KG but less than 60 KG of Benzyl Chloride;
    At least 1075 KG but less than 3225 KG of Ethyl Ether;
    At least 1200 KG but less than 3600 KG of Methyl Ethyl Ketone;
    At least 10 KG but less than 30 KG of Potassium Permanganate;
    At least 1300 KG but less than 3900 KG of Toluene.''.
    Section 2D1.11(e)(4) (as so redesignated) is amended by striking 
``Level 26'' and inserting ``Level 24''.
    Section 2D1.11(e)(5) (as so redesignated) is amended by striking 
``Level 24'' and inserting ``Level 22''.
    Section 2D1.11(e)(6) (as so redesignated) is amended by striking 
``Level 22'' and inserting ``Level 20''.
    Section 2D1.11(e)(7) (as so redesignated) is amended by striking 
``Level 20'' and inserting ``Level 18''.
    Section 2D1.11(e)(8) (as so redesignated) is amended by striking 
``Level 18'' and inserting ``Level 16''.
    Section 2D1.11(e)(9) (as so redesignated) is amended by striking 
``Level 16'' and inserting ``Level 14''.
    Section 2D1.11(e)(10) (as so redesignated) is amended by striking 
``Level 14'' and inserting ``Level 22''; and in each line by striking 
``At least'' and all that follows through ``but less'' and inserting 
``Less''.
    The Commentary to Sec.  2D1.11 captioned ``Application Notes'' is 
amended in Note 1(A) by striking ``38'' both places such term appears 
and inserting ``36''; and by striking ``26'' and inserting ``24'';

and in Note 1(B) by striking ``32'' and inserting ``30''.

(C) Environmental and Other Harms Caused by Drug Production Operations 
(Including, in Particular, the Cultivation of Marihuana)

Issue for Comment
    1. The Commission requests comment on the environmental and other 
harms caused by offenses involving drug production operations 
(including, in particular, the cultivation of marihuana). Specifically, 
the Commission requests comment on whether the guidelines provide 
penalties for these offenses that appropriately account for the 
environmental and other harms caused by these offenses and, if not, 
what changes to the guidelines would be appropriate.
    A person who cultivates or manufactures a controlled substance on 
Federal property may be prosecuted under 21 U.S.C. Sec.  841 and 
subject to the same statutory penalty structure that applies to most 
other drug offenses. See 21 U.S.C. Sec.  841(b)(5). As discussed in 
Part A, the base offense level for such an offense will generally be 
determined under Sec.  2D1.1 based on the type and quantity of the drug 
involved. The guideline also provides a range of other provisions that 
may apply in particular cases. For example:
    (1) Sec.  2D1.1(b)(12) provides a 2-level enhancement if the 
defendant maintained a premises for the purpose of manufacturing or 
distributing a controlled substance; and
    (2) Sec.  2D1.1(b)(13) provides a tiered enhancement that includes, 
among other things, a 2-level enhancement if the offense involved an 
unlawful discharge, emission, or release into the environment of a 
hazardous or toxic substance, see Sec.  2D1.1(b)(13)(A)(i), and a 3-
level enhancement if the offense involved the manufacture of 
amphetamine or methamphetamine and the offense created a substantial 
risk of harm to human life or the environment, see Sec.  
2D1.1(b)(13)(C)(ii).
    An offense involving the cultivation or production of a controlled 
substance may also be prosecuted under certain other statutes that take 
into account environmental or other harms. For example:
    (A) Section 841(b)(6) makes it unlawful to manufacture a controlled 
substance (or attempt to do so) and knowingly or intentionally use a 
poison, chemical, or other hazardous substance on Federal land, and by 
such use (A) create a serious hazard to humans, wildlife, or domestic 
animals; (B) degrade or harm the environment or natural resources; or 
(C) pollute an aquifer, spring, stream, river, or body of water. A 
person who violates section 841(b)(6) is subject to a statutory maximum 
term of imprisonment of five years. Section 841(b)(6) is not referenced 
in Appendix A (Statutory Index) to any offense guideline.
    (B) Section 841(d) makes it unlawful to assemble, maintain, place, 
or cause to be placed a boobytrap on Federal property where a 
controlled substance is being manufactured. A person who violates 
section 841(d) is subject to a statutory maximum term of imprisonment 
of ten years. Section 841(d) is referenced in Appendix A (Statutory 
Index) to Sec.  2D1.9 (Placing or Maintaining Dangerous Devices on 
Federal Property to Protect the Unlawful Production of Controlled 
Substances; Attempt or Conspiracy). Section 2D1.9 provides a base 
offense level of level 23 and contains no other provisions.
    The Commission seeks comment on offenses involving drug production 
operations, including, in particular, offenses involving the 
cultivation of marihuana. What conduct is involved in such offenses, 
and what is the nature and seriousness of the environmental and other 
harms posed by such offenses? What aggravating and mitigating 
circumstances may be present in such offenses? For example, if the 
offense was committed on federal property or caused environmental or 
other harm to federal property, should that circumstance be an 
aggravating factor? If the offense was committed while trespassing on 
private property or caused environmental or other harm while 
trespassing on private property, should that circumstance be an 
aggravating factor?
    Do the provisions of Sec.  2D1.1 and Sec.  2D1.9, as applicable, 
adequately account for the conduct, the environmental and other harms, 
and the aggravating and mitigating circumstances? If not, how should 
the Commission amend the guidelines to account for the conduct, the 
environmental and other harms, and the aggravating and mitigating 
circumstances? Should the Commission provide a new specific offense 
characteristic, cross reference, or departure provision? If so, what 
should the new provision provide? Alternatively, should the Commission 
increase the amount, or the scope, of the existing specific offense 
characteristics, such as those in subsections (b)(12) and (b)(13)? If 
so, what should the new amount or scope of such provisions be?

4. Felon in Possession

    Synopsis of Proposed Amendment: This proposed amendment clarifies 
how principles of relevant conduct apply in cases in which the 
defendant is convicted of a firearms offense (e.g., being a felon in 
possession of a firearm) in two situations: First, when the defendant 
unlawfully possessed one firearm on one occasion and a different 
firearm on another occasion (but was not necessarily convicted of the 
second offense); and second, when the defendant unlawfully possessed a 
firearm and also used a firearm in connection with another offense, 
such as robbery or attempted murder (but was not necessarily convicted 
of the other offense).
    Circuits appear to be following a range of approaches in 
determining how the relevant conduct guideline, Sec.  1B1.3 (Relevant 
Conduct (Factors that Determine the Guideline Range)),

[[Page 3294]]

interacts with the firearms guideline, Sec.  2K2.1 (Unlawful Receipt, 
Possession, or Transportation of Firearms or Ammunition; Prohibited 
Transactions Involving Firearms or Ammunition), in such cases.
    Consider, for example, a case in which the defendant, a convicted 
felon, possesses a shotgun (a violation of 18 U.S.C. Sec.  922(g)) on 
one occasion and possesses a handgun (another violation of section 
922(g)) on another occasion. The defendant is convicted of a single 
count, for the unlawful possession of the shotgun. The court determines 
that the defendant also used the handgun in connection with a robbery.
    In such a case, the court must determine, among other things, 
whether to apply the specific offense characteristic at subsection 
(b)(6)(B) or the cross reference at subsection (c)(1), or both. Under 
subsection (b)(6)(B), if a defendant possesses any firearm in 
connection with another offense, the defendant may receive a 4-level 
enhancement and a minimum offense level of 18. Similarly, under 
subsection (c)(1), if the defendant possesses any firearm in connection 
with another offense, the defendant may be cross referenced to another 
offense guideline applicable to the defendant's other offense conduct.
    As with other specific offense characteristics and cross references 
in the Guidelines Manual, the scope of these provisions is determined 
based on subsections (a)(1) through (a)(4) of the relevant conduct 
guideline, Sec.  1B1.3 (Relevant Conduct (Factors that Determine the 
Guideline Range)):
    (a)(1) acts and omissions ``that occurred during the commission of 
the offense of conviction, in preparation for that offense, or in the 
course of attempting to avoid detection or responsibility for that 
offense'', see Sec.  1B1.3(a)(1);
    (a)(2) ``solely with respect to offenses of a character for which 
Sec.  3D1.2(d) would require grouping of multiple counts, all acts and 
omissions . . . that were part of the same course of conduct or common 
scheme or plan as the offense of conviction'', see Sec.  1B1.3(a)(2);
    (a)(3) ``all harm that resulted from the acts and omissions . . . , 
and all harm that was the object of such acts and omissions'', see 
Sec.  1B1.3(a)(3); and
    (a)(4) ``any other information specified in the applicable 
guideline'', see Sec.  1B1.3(a)(4).

When the Defendant Used the Firearm in Connection With Another Offense

    One application issue arises when the defendant unlawfully 
possessed a firearm and used the firearm in connection with another 
offense, and the court must determine whether the ``in connection 
with'' offense under subsections (b)(6)(B) and (c)(1) satisfies the 
requirements of the relevant conduct guideline.
    In several circuits, when a felon in possession defendant possessed 
a firearm in connection with another offense, the courts apply a 
subsection (a)(2) relevant conduct analysis and consider whether the 
other offense is a ``groupable'' offense under Sec.  3D1.2(d); if the 
other offense is not a ``groupable'' offense, the increase under 
subsection (b)(6)(B) and the cross reference under subsection (c)(1) do 
not apply. See, e.g., United States v. Horton, 693 F.3d 463, 478-79 
(4th Cir. 2012) (felon in possession used a firearm in connection with 
a murder, but the murder is not relevant conduct under subsection 
(a)(2) analysis because murder does not group); Settle, 414 F.3d at 
632-33 (attempted murder); United States v. Jones, 313 F.3d 1019, 1023 
n.3 (7th Cir. 2002) (murder); United States v. Williams, 431 F.3d 767, 
772-73 & n.9 (11th Cir. 2005) (aggravated assault). These circuits do 
not appear to preclude subsection (b)(6)(B) or (c)(1) from applying to 
the defendant under a subsection (a)(1) relevant conduct analysis. The 
Third Circuit also applies a subsection (a)(2) relevant conduct 
analysis in such a case but does not require the other offense to be a 
``groupable'' offense. See United States v. Kulick, 629 F.3d 165, 170 
(3rd Cir. 2010) (in felon in possession case, cross reference to 
extortion guideline may apply under subsection (a)(2) relevant conduct 
analysis even though extortion does not group). The Fifth Circuit, in 
contrast, has held that the court does not perform any relevant conduct 
analysis in determining the scope of subsections (b)(6)(B) and (c)(1). 
United States v. Gonzales, 996 F.2d 88, 92 n.6 (5th Cir. 1993). See 
also United States v. Outley, 348 F.3d 476 (5th Cir. 2003) (``section 
1B1.3 does not restrict the application of section 2K2.1(c)(1)'').

When the Defendant Unlawfully Possessed One Firearm on One Occasion and 
a Different Firearm on Another Occasion

    A second application issue arises when the defendant unlawfully 
possessed one firearm on one occasion and a different firearm on 
another occasion, and the court must determine whether both firearms 
fall within the scope of ``any firearm'' under subsections (b)(6)(B) 
and (c)(1).
    The circuits appear to agree that the use of the term ``any firearm 
or ammunition'' in subsections (b)(6)(B) and (c)(1) indicates that they 
apply to any firearm ``and not merely to a particular firearm upon 
which the defendant's felon-in-possession conviction is based.'' United 
States v. Mann, 315 F.3d 1054, 1055-57 (8th Cir. 2003). See also United 
States v. Jardine, 364 F.3d 1200, 1207 (10th Cir. 2004); United States 
v. Williams, 431 F.3d 767, 769-71 (11th Cir. 2005). But there are 
different approaches among the circuits as to what, if any, limiting 
principles apply. For example, the Sixth Circuit has indicated that 
there must be a ``clear connection'' between the different firearms 
because of relevant conduct principles under Sec.  1B1.3. See United 
States v. Settle, 414 F.3d 629, 632-33 (6th Cir. 2005), and most other 
circuits to consider the question have agreed. However, the Fifth 
Circuit has held that relevant conduct principles do not apply, but the 
other firearm ``must at least be related'' to the firearm in the count 
of conviction because of the ``overall context'' of Sec.  2K2.1. United 
States v. Gonzales, 996 F.2d 88, 92 n.6 (5th Cir. 1993). See also 
United States v. Outley, 348 F.3d 476 (5th Cir. 2003) (``section 1B1.3 
does not restrict the application of section 2K2.1(c)(1)'').
    The proposed amendment provides two options for clarifying the 
operation of the firearms guideline in these situations.
    Option 1 amends subsections (b)(6)(B) and (c)(1) to limit their 
application to firearms and ammunition identified in the offense of 
conviction. It makes conforming changes to the Commentary. Included 
among those conforming changes is an example of how the relevant 
conduct principles operate in a case in which the defendant is 
convicted of being a felon in possession of a firearm and also 
committed another offense with that same firearm. The example provides:

    Defendant A is convicted of being a felon in possession of a 
shotgun. The court determines that Defendant A used the shotgun in 
connection with a robbery. Under these circumstances, subsection 
(b)(6)(B) applies, and the cross reference in subsection (c)(1) also 
applies if it results in a greater offense level. The use of the 
shotgun in connection with the robbery is a factor specified in 
subsections (b)(6)(B) and (c)(1) and therefore is relevant conduct 
under Sec.  1B1.3(a)(4) (``any other information specified in the 
applicable guideline'').

    Option 2 amends the Commentary to Sec.  2K2.1 to clarify that 
subsections (b)(6)(B) and (c)(1) are not limited to firearms and 
ammunition identified in the offense of conviction. For a case in which 
the defendant is convicted of being a felon in possession of a firearm 
and also committed another offense

[[Page 3295]]

with that firearm, it provides the same example provided by Option 1. 
For a case in which the defendant is convicted of being a felon in 
possession of a firearm and also committed another offense with a 
different firearm, it provides an additional example. In such a case, 
the court must, as a threshold matter, determine whether the two felon 
in possession offenses are relevant conduct to each other. 
Specifically, it provides the following example:

    Defendant B is convicted of being a felon in possession of a 
shotgun. The court determines that Defendant B also unlawfully 
possessed a handgun and that Defendant B used the handgun in 
connection with a robbery. Under these circumstances, the threshold 
question for the court is whether the two unlawful possession 
offenses (for the shotgun and for the handgun) were part of the same 
course of conduct or common scheme or plan. See Sec.  1B1.3(a)(2). 
If they were, then both felon in possession offenses are used in 
determining the offense level. Accordingly, subsection (b)(6)(B) 
would apply, and the cross reference in subsection (c)(1) would also 
apply if it results in a greater offense level.

    Several issues for comment are also provided.
Proposed Amendment
    Section 2K2.1 is amended as follows (two options are provided):

[Option 1:

    Section 2K2.1(b)(6)(B) is amended by inserting after ``firearm or 
ammunition'' both places such term appears the following: ``identified 
in the offense of conviction''.
    Section 2K2.1(c)(1) is amended by inserting after ``firearm or 
ammunition'' both places such term appears the following: ``identified 
in the offense of conviction''.
    The Commentary to Sec.  2K2.1 captioned ``Application Notes'' is 
amended in Note 14 by striking ```In Connection With'.--'' and 
inserting ``Application of Subsections (b)(6)(B) and (c)(1).--'';

in Note 14(A) by inserting after ``firearm or ammunition'' the 
following: ``identified in the offense of conviction'';

in Note 14(B) by inserting after ``a firearm'' both places such term 
appears the following: ``identified in the offense of conviction'';

and in Note 14 by adding at the end the following:

    `` (E) Relationship Between the Instant Offense and the Other 
Offense.--In determining whether subsections (b)(6)(B) and (c)(1) 
apply, the court must consider the relationship between the instant 
offense and the other offense, consistent with relevant conduct 
principles. See Sec.  1B1.3(a)(1)-(4) and accompanying commentary. For 
example:
    Defendant A is convicted of being a felon in possession of a 
shotgun. The court determines that Defendant A used the shotgun in 
connection with a robbery. Under these circumstances, subsection 
(b)(6)(B) applies, and the cross reference in subsection (c)(1) also 
applies if it results in a greater offense level. The use of the 
shotgun in connection with the robbery is a factor specified in 
subsections (b)(6)(B) and (c)(1) and therefore is relevant conduct 
under Sec.  1B1.3(a)(4) (`any other information specified in the 
applicable guideline').]

[Option 2:

    The Commentary to Sec.  2K2.1 captioned ``Application Notes'' is 
amended in Note 14 by striking ```In Connection With'.--'' and 
inserting ``Application of Subsections (b)(6)(B) and (c)(1).--'';

and by adding at the end the following:
    `` (E) Relationship Between the Instant Offense and the Other 
Offense.--In determining whether subsections (b)(6)(B) and (c)(1) 
apply, the court must consider the relationship between the instant 
offense and the other offense, consistent with relevant conduct 
principles. See Sec.  1B1.3(a)(1)-(4) and accompanying commentary. For 
example:
    (i) Defendant A is convicted of being a felon in possession of a 
shotgun. The court determines that Defendant A used the shotgun in 
connection with a robbery. Under these circumstances, subsection 
(b)(6)(B) applies, and the cross reference in subsection (c)(1) also 
applies if it results in a greater offense level. The use of the 
shotgun in connection with the robbery is a factor specified in 
subsections (b)(6)(B) and (c)(1) and therefore is relevant conduct 
under Sec.  1B1.3(a)(4) (`any other information specified in the 
applicable guideline').
    (ii) Defendant B is convicted of being a felon in possession of a 
shotgun. The court determines that Defendant B also unlawfully 
possessed a handgun and that Defendant B used the handgun in connection 
with a robbery. Under these circumstances, the threshold question for 
the court is whether the two unlawful possession offenses (for the 
shotgun and for the handgun) were part of the same course of conduct or 
common scheme or plan. See Sec.  1B1.3(a)(2). If they were, then both 
felon in possession offenses are used in determining the offense level. 
Accordingly, subsection (b)(6)(B) would apply, and the cross reference 
in subsection (c)(1) would also apply if it results in a greater 
offense level.'']
Issues for Comment
    1. The Commission invites comment on cases in which the defendant 
is convicted of a firearms offense (e.g., being a felon in possession 
of a firearm) but also engaged in other offense conduct with a firearm, 
such as robbery or attempted murder. The firearms guideline accounts 
for such conduct through the operation of subsections (b)(6)(B) and 
(c)(1), and the proposed amendment would clarify the operation of these 
provisions.
    Does the proposed amendment adequately clarify the operation of 
subsections (b)(6)(B) and (c)(1) in these cases? If not, how should the 
Commission revise the proposed amendment to better clarify the 
operation of subsections (b)(6)(B) and (c)(1) in these cases?
    2. In addition, the Commission seeks comment on the operation and 
scope of subsections (b)(6)(B) and (c)(1). Are there inconsistencies in 
how these provisions are applied? Should the Commission consider 
narrowing or clarifying the scope of these provisions, particularly in 
cases in which the defendant was convicted of possessing one firearm 
but also used another firearm in connection with another offense? 
Should the cross reference in subsection (c)(1) be deleted?

5. 2L1.1

    Synopsis of Proposed Amendment: This amendment responds to concerns 
that have been raised about cases in which aliens are transported 
through dangerous terrain, e.g., along the southern border of the 
United States. The Commission has heard that the guidelines may not 
adequately account for the harms that may be involved in such cases. 
For example, aliens transported through such terrain may face the risk 
of starvation, dehydration, or exposure, ranch property may be damaged 
or destroyed, and border patrol search and rescue teams may need to be 
involved.
    Section 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful 
Alien) currently has an enhancement at subsection (b)(6) for reckless 
endangerment, which provides for a 2-level increase and a minimum 
offense level of 18 if the offense involved intentionally or recklessly 
creating a substantial risk of death or serious bodily injury to 
another person. The application note for subsection (b)(6) explains 
that reckless conduct to which subsection (b)(6) applies includes a 
wide variety of conduct, and provides as

[[Page 3296]]

examples ``transporting persons in the trunk or engine compartment of a 
motor vehicle, carrying substantially more passengers than the rated 
capacity of a motor vehicle or vessel, or harboring persons in a 
crowded, dangerous, or inhumane condition''.
    One case that illustrates these concerns is United States v. Mateo 
Garza, 541 F.3d 2008 (5th Cir. 2008), in which the Fifth Circuit held 
that the reckless endangerment enhancement at Sec.  2L1.1(b)(6) does 
not per se apply to transporting aliens through the South Texas brush 
country, and must instead be applied based on the specific facts 
presented to the court. The Fifth Circuit emphasized that it is not 
enough to say, as the district court had, that traversing an entire 
geographical region is inherently dangerous, but that it must be 
dangerous on the facts presented to and used by the district court. The 
Fifth Circuit identified such pertinent facts from its prior case law 
as the length of the journey, the temperature, whether the aliens were 
provided food and water and allowed rest periods, and whether such 
aliens suffered injuries and death. See, e.g., United States v. Garcia-
Guerrero, 313 F.3d 892 (5th Cir. 2002). Additional facts that have 
supported the enhancement include: whether the aliens were abandoned en 
route, the time of year during which the journey took place, the 
distance traveled, and whether the aliens were adequately clothed for 
the journey. See e.g., United States v. Chapa, 362 Fed. App'x 411 (5th 
Cir. 2010); United States v. De Jesus-Ojeda, 515 F.3d 434 (5th Cir. 
2008); United States v. Hernandez-Pena, 267 Fed. App'x 367 (5th Cir. 
2008); United States v. Rodriguez-Cruz, 255 F.3d 1054 (9th Cir. 2001).
    The proposed amendment adds to the existing parenthetical that 
currently provides examples of the ``wide variety of conduct'' to which 
this specific offense characteristic could apply, ``or guiding persons 
through, or abandoning persons in, dangerous terrain without adequate 
food, water, clothing, or protection from the elements''.
    An issue for comment is also included.
Proposed Amendment
    The Commentary to Sec.  2L1.1 captioned ``Application Notes'' is 
amended in Note 5 by striking ``or'' before ``harboring'', and by 
inserting after ``inhumane condition'' the following: ``, or guiding 
persons through, or abandoning persons in, dangerous terrain without 
adequate food, water, clothing, or protection from the elements''.
Issue for Comment
    1. The Commission seeks comment on cases in which individuals guide 
persons through, or abandon persons in, dangerous terrain (e.g., on the 
southern border of the United States). Are there aggravating or 
mitigating factors in such cases that the Commission should take into 
account in the guidelines? If so, what are the factors, and how should 
the Commission amend the guidelines to take them into account? 
Specifically:
    (A) The Commission has heard concern that Sec.  2L1.1 may not be 
adequate in cases in which aliens are transported through desert-like 
terrain. Such transport, it has been argued, is inherently dangerous in 
that aliens may lack adequate food, water, and clothing for the climate 
and length of the journey, and guides may become lost or abandon the 
aliens whom they lead. Similar risks may be associated with 
transporting aliens through mountainous regions. See, e.g., United 
States v. Rodriguez-Cruz, 255 F.3d 1054 (9th Cir. 2001). Do these 
factors support a per se application of the enhancement at subsection 
(b)(6)? Instead, should the guideline account for these factors in some 
other way? If so, how should the Commission amend the guidelines to 
take these factors into account?
    (B) Concern has also been raised that, in cases in which 
individuals guide aliens through private lands, ranch property may be 
damaged or destroyed. Should this guideline account for such damage? If 
so, how should the Commission amend the guidelines to take this into 
account?
    (C) The Commission has also heard that some alien transportation 
cases involve the rescue of aliens by special border patrol search and 
rescue teams. Should this guideline account for the added resources 
required for these search and rescue missions? If so, how should the 
Commission amend the guidelines to take this into account?

6. 5D1.2

    Synopsis of Proposed Amendment: This proposed amendment addresses 
differences among the circuits in the calculation of the guideline 
range of supervised release under Sec.  5D1.2 (Term of Supervised 
Release) in two situations: First, when there is a statutory minimum 
term of supervised release, and second, when the instant offense of 
conviction is failure to register as a sex offender under 18 U.S.C. 
Sec.  2250.
    Section 5D1.2(a) sets forth general rules for determining the 
guideline range of supervised release. The guideline range is two to 
five years, for a Class A or B felony (i.e., a statutory maximum of 25 
or more years); one to three years, for a Class C or D felony (i.e., a 
statutory maximum of five or more years but less than 25 years); and 
one year, for a Class E felony or a Class A misdemeanor (i.e., a 
statutory maximum of one or more years but less than five years). See 
Sec.  5D1.2(a)(1)-(3); 18 U.S.C. Sec.  3559 (Sentencing classification 
of offenses).
    Section 5D1.2(b) operates for certain offenses to replace the top 
end of the guideline range calculated under subsection (a) with a life 
term of supervised release. Those offenses are (1) any offense listed 
in 18 U.S.C. Sec.  2332b(g)(5)(B), the commission of which resulted in, 
or created a foreseeable risk of, death or serious bodily injury to 
another person; and (2) a sex offense (as defined in the Commentary to 
'5D1.2).
    Section 5D1.2(c) states: ``The term of supervised release imposed 
shall be not less than any statutorily required term of supervised 
release.''

A. When a Statutory Minimum Term of Supervised Release Applies

    First, there appear to be differences among the circuits in how to 
calculate the guideline range of supervised release when there is a 
statutory minimum term of supervised release. These cases involve the 
meaning of subsection (c) and its interaction with subsection (a).
    The Seventh Circuit held that when there is a statutory minimum 
term of supervised release, the statutory minimum term becomes the 
bottom of the guideline range (replacing the bottom of the range 
provided by (a)) or, if it equals or exceeds the top of the guideline 
range provided by subsection (a), becomes a guidelines ``range'' of a 
single point at the statutory minimum. United States v. Gibbs, 578 F.3d 
694, 695 (7th Cir. 2009). Thus, if subsection (a) provides a range of 
three to five years, but the statute provides a range of five years to 
life, the ``range'' is precisely five years. Gibbs involved a drug 
offense for which 21 U.S.C. Sec.  841(b) required a supervised release 
term of five years to life. See also United States v. Goodwin, 717 F.3d 
511, 519-20 (7th Cir. 2013) (applying Gibbs to a case involving a 
failure to register for which 18 U.S.C. Sec.  3583(k) required a 
supervised release term of five years to life).
    These cases are in tension with the approach of the Eighth Circuit 
in United States v. Deans, 590 F.3d 907, 911 (8th Cir. 2010). In Deans, 
the range calculated under subsection (a) was two to three years of 
supervised release. However, the relevant statute, 21 U.S.C.

[[Page 3297]]

Sec.  841(b)(1)(C), provided a range three years to life. Under the 
Seventh Circuit's approach in Gibbs, the guidelines ``range'' would 
appear to be precisely three years. Without reference to Gibbs, the 
Eighth Circuit in Deans indicated that the statutory requirement 
``trumps'' subsection (a), and the guideline range becomes the 
statutory range--three years to life. 590 F.3d at 911. Thus, the 
district court's imposition of five years of supervised release ``was 
neither an upward departure nor procedural error.'' Id.
    Part A provides two options for resolving these differences. Option 
1 adopts the approach of the Seventh Circuit in Gibbs and Goodwin. 
Option 2 adopts the approach of the Eighth Circuit in Deans. Each 
option amends the commentary to provide examples of how subsection (c) 
would operate.

B. When the Defendant Is Convicted of Failure To Register as a Sex 
Offender

    Second, there appear to be differences among the circuits in how to 
calculate the guideline range of supervised release when the defendant 
is convicted under 18 U.S.C. Sec.  2250 (i.e., for failing to register 
as a sex offender). When a defendant is convicted of such an offense, 
the court is required by statute to impose a term of supervised release 
of at least five years and up to life. See 18 U.S.C. Sec.  3583(k).
    There appears to be an application issue about when, if at all, 
such an offense is a ``sex offense'' for purposes of subsection (b) of 
Sec.  5D1.2. If a failure to register is a sex offense, then subsection 
(b) specifically provides for a term of supervised release of anywhere 
from the minimum provided by subsection (a) to the maximum provided by 
statute (i.e., life), and a policy statement contained within 
subsection (b) recommends that the maximum be imposed. See Sec.  
5D1.2(b), p.s. Another effect of the determination is that, if a 
failure to register is a ``sex offense,'' the guidelines recommend that 
special conditions of supervised release also be imposed, such as 
participating in a sex offender monitoring program and submitting to 
warrantless searches. See Sec.  5D1.3(d)(7).
    Application Note 1 defines ``sex offense'' to mean, among other 
things, ``an offense, perpetrated against a minor, under'' chapter 109B 
of title 18 (the only section of which is section 2250). Circuits have 
reached different conclusions about the effect of this definition.
    The Seventh Circuit has held that a failure to register can never 
be a ``sex offense'' within the meaning of Note 1. United States v. 
Goodwin, 717 F.3d 511, 518-20 (7th Cir. 2013). The court in Goodwin 
reasoned that there is no specific victim of a failure to register, and 
therefore a failure to register is never ``perpetrated against a 
minor'' and can never be a ``sex offense''--rendering the definition's 
inclusion of offenses under chapter 109B ``surplusage''. 717 F.3d at 
518. In an unpublished opinion, the Second Circuit has determined that 
a failure to register was not a ``sex offense''. See United States v. 
Herbert, 428 Fed. App'x 37 (2d Cir. 2011). In both cases, the 
government argued for these outcomes, confessing error below.
    There are unpublished decisions in other circuits that have reached 
different results, without discussion. In those cases, the defendant 
had a prior sex offense against a minor, and the circuit court 
determined that the failure to register was a ``sex offense''. See 
United States v. Zeiders, 440 Fed. App'x 699, 701 (11th Cir. 2011); 
United States v. Nelson, 400 Fed. App'x 781 (4th Cir. 2010).
    Part B responds to the application issue by amending the commentary 
to '5D1.2 to clarify that offenses under section 2250 are not ``sex 
offenses''. An issue for comment seeks comment on supervised release 
for offenses under section 2250, including what term should be provided 
by the supervised release guidelines and whether there are distinctions 
among section 2250 offenses that should be accounted for in the 
supervised release guidelines (e.g., in the length or conditions of 
supervised release).
Proposed Amendment

(A) When a Statutory Minimum Term of Supervised Release Applies

    The Commentary to Sec.  5D1.2 captioned ``Application Notes'' is 
amended by adding at the end the following new Note 6 (two options are 
provided):

[Option 1:

    ``6. Application of Subsection (c).--Subsection (c) specifies how a 
statutorily required minimum term of supervised release may affect the 
minimum term of supervised release provided by the guidelines. For 
example, if subsection (a) provides a range of two years to five years, 
but the relevant statute requires a minimum term of supervised release 
of three years and a maximum term of life, the term of supervised 
release provided by the guidelines is restricted by subsection (c) to 
three years to five years. Similarly, if subsection (a) provides a 
range of two years to five years, but the relevant statute requires a 
minimum term of supervised release of five years and a maximum term of 
life, the term of supervised release provided by the guidelines is five 
years.
    The following example illustrates the interaction of subsections 
(a) and (c) when subsection (b) is also involved. In this example, 
subsection (a) provides a range of two years to five years; the 
relevant statute requires a minimum term of supervised release of five 
years and a maximum term of life; and the offense is a sex offense 
under subsection (b). The effect of subsection (b) is to raise the 
maximum term of supervised release from five years (as provided by 
subsection (a)) to life, yielding a range of two years to life. The 
term of supervised release provided by the guidelines is then 
restricted by subsection (c) to five years to life. In this example, a 
term of supervised release of more than five years would be a guideline 
sentence. In addition, subsection (b) contains a policy statement 
recommending that the maximum--a life term of supervised release--be 
imposed.'']

[Option 2:

    ``6. Application of Subsection (c).--Subsection (c) specifies how a 
statutorily required minimum term of supervised release may affect the 
term of supervised release provided by the guidelines. In such a case, 
the range provided by statute supersedes the range provided by 
subsection (a). For example, if subsection (a) provides a range of two 
years to five years, but the relevant statute requires a minimum term 
of supervised release of three years and a maximum term of life, the 
term of supervised release provided by the guidelines is three years to 
life.'']

(B) When the Defendant Is Convicted of Failure To Register as a Sex 
Offender

    The Commentary to Sec.  5D1.2 captioned ``Application Notes'' is 
amended in Note 1, in the paragraph that begins ``'Sex offense' 
means'', in subparagraph (A), by striking clause (ii) and redesignating 
clauses (iii) through (vi) as clauses (ii) through (v), respectively; 
and in subparagraph (B) by striking ``(vi)'' and inserting ``(v)''.
Issue for Comment
    1. The Commission seeks comment on supervised release for 
defendants convicted under section 2250. Under section 2250(a), a 
defendant who fails to register as a sex offender shall be imprisoned 
for not more than 10 years. Under section 2250(c), an individual who 
fails to register under section 2250(a) and commits a crime of violence 
shall be imprisoned for not less than 5 years and not more than 30 
years, in

[[Page 3298]]

addition to and consecutive to the punishment for violating section 
2250(a).
    First, the Commission seeks comment on what length term of 
supervised release the guidelines should provide for offenses under 
section 2250. When a defendant is convicted of such an offense, the 
court is required by statute to impose a term of supervised release of 
at least five years and up to life. See 18 U.S.C. Sec.  3583(k). What 
term of supervised release should the guidelines provide? In 
particular, should the guidelines provide for a term of supervised 
release of:
    (A) not less than five years and up to life;
    (B) not less than five years and up to life, with a life term 
recommended;
    (C) precisely five years; or
    (D) some other option?
    Second, the Commission seeks comment on whether there are 
distinctions among section 2250 offenses that should be accounted for 
in the supervised release guidelines (e.g., in the length or conditions 
of supervised release). In particular:
    (i) Should a defendant convicted under section 2250(c) be treated 
differently from a defendant convicted under section 2250(a)? For 
example, should the guidelines provide a longer term of supervised 
release for an offense under section 2250(c) than for an offense under 
section 2250(a)? If so, how much longer? Should the guidelines provide 
more conditions of supervised release for an offense under section 
2250(c) than for an offense under section 2250(a)? If so, what 
conditions?
    (ii) Should a defendant who was convicted of a sex offense against 
a minor, and was then convicted of failing to register that conviction, 
be treated differently from a defendant who was convicted of a sex 
offense against an adult? For example, should the guidelines provide a 
longer term of supervised release for a defendant whose underlying sex 
offense was against a minor than for a defendant whose underlying sex 
offense was against an adult? If so, how much longer? Should the 
guidelines provide more conditions of supervised release for a 
defendant whose underlying sex offense was against a minor than for a 
defendant whose underlying sex offense was against an adult? If so, 
what conditions?
    (iii) Specifically for defendants convicted under section 2250(c), 
should a defendant whose ``crime of violence'' under section 2250(c) 
was committed against a minor be treated differently from a defendant 
whose ``crime of violence'' was committed against an adult? For 
example, should the guidelines provide a longer term of supervised 
release for a defendant whose ``crime of violence'' was against a minor 
than for a defendant whose ``crime of violence'' was against an adult? 
If so, how much longer? Should the guidelines provide more conditions 
of supervised release for a defendant whose ``crime of violence'' was 
against a minor than for a defendant whose ``crime of violence'' was 
against an adult? If so, what conditions?

7. 5G1.3

    Synopsis of Proposed Amendment: This proposed amendment addresses 
cases in which the defendant is subject to an undischarged term of 
imprisonment. The guideline applicable to this is Sec.  5G1.3 
(Imposition of a Sentence on a Defendant Subject to an Undischarged 
Term of Imprisonment), which provides:
    (a) If the instant offense was committed while the defendant was 
serving a term of imprisonment (including work release, furlough, or 
escape status) or after sentencing for, but before commencing service 
of, such term of imprisonment, the sentence for the instant offense 
shall be imposed to run consecutively to the undischarged term of 
imprisonment.
    (b) If subsection (a) does not apply, and a term of imprisonment 
resulted from another offense that is relevant conduct to the instant 
offense of conviction under the provisions of subsections (a)(1), 
(a)(2), or (a)(3) of Sec.  1B1.3 (Relevant Conduct) and that was the 
basis for an increase in the offense level for the instant offense 
under Chapter Two (Offense Conduct) or Chapter Three (Adjustments), the 
sentence for the instant offense shall be imposed as follows:
    (1) The court shall adjust the sentence for any period of 
imprisonment already served on the undischarged term of imprisonment if 
the court determines that such period of imprisonment will not be 
credited to the federal sentence by the Bureau of Prisons; and
    (2) the sentence for the instant offense shall be imposed to run 
concurrently to the remainder of the undischarged term of imprisonment.
    (c) (Policy Statement) In any other case involving an undischarged 
term of imprisonment, the sentence for the instant offense may be 
imposed to run concurrently, partially concurrently, or consecutively 
to the prior undischarged term of imprisonment to achieve a reasonable 
punishment for the instant offense.
    The proposed amendment is in three parts, each of which amend Sec.  
5G1.3. The first part addresses cases in which a defendant is subject 
to an undischarged term of imprisonment that is relevant conduct but 
does not result in a Chapter Two or Three increase. The second part 
addresses the adjustment of sentences for defendants subject to 
anticipated state terms of imprisonment. The third part addresses cases 
in which certain deportable aliens are subject to undischarged terms of 
imprisonment. Although these three parts revise the same guideline in 
overlapping ways, the Commission seeks comment on each of them 
independently. They are presented not as alternatives to each other but 
rather as independent proposals that could, if appropriate, be adopted 
in combination.

(A) Accounting for Undischarged Terms of Imprisonment That Are Relevant 
Conduct But Do Not Result in Chapter Two or Chapter Three Increases

    Synopsis of Proposed Amendment: Part A amends Sec.  5G1.3(b) to 
require a court to adjust the sentence and impose concurrent sentences 
in any case in which the prior offense is relevant conduct under the 
provisions of Sec.  1B1.3(a)(1), (a)(2), or (a)(3), whether or not it 
also formed the basis for a Chapter Two or Chapter Three increase. 
Conforming changes are made to the application notes as well.
    An issue for comment is also included.
Proposed Amendment
    Section 5G1.3(b) is amended by striking ``and that was the basis 
for an increase in the offense level for the instant offense under 
Chapter Two (Offense Conduct) or Chapter Three (Adjustments)''.
    The Commentary to Sec.  5G1.3 captioned ``Application Notes'' is 
amended in Note 2(A) by striking ``(i)'' and by striking ``; and (ii)'' 
and all that follows through ``offense.'' and inserting a period;
in Note 2(B) by striking ``increased the Chapter Two or Three offense 
level for the instant offense but''; and
in Note 2(D) by striking ``40'' and inserting ``55'', and by striking 
``55'' and inserting ``70''.
Issue for Comment
    1. The Commission seeks comment on the application of Sec.  
5G1.3(b) as it relates to the relevant conduct rules in Sec.  1B1.3 and 
any Chapter Two or Three offense level increases that may apply at 
sentencing. Specifically, the proposed amendment would amend Sec.  
5G1.3(b) to delete the requirement that the prior

[[Page 3299]]

offense form the basis for a Chapter Two or Chapter Three increase, but 
would maintain the requirement that the prior offense be relevant 
conduct under the provisions of only certain subsections of the 
relevant conduct rules, namely subsections (a)(1), (a)(2), or (a)(3) of 
Sec.  1B1.3. Should the proposed amendment also allow application of 
Sec.  5G1.3(b) if the prior offense was relevant conduct under 
subsection (a)(4) of Sec.  1B1.3, relating to ``any other information 
specified in the applicable guideline''? Such an amendment would, for 
instance, authorize a court to apply Sec.  5G1.3(b) where the prior 
offense is an aggravated felony for which the defendant received an 
increase under Sec.  2L1.2 (Unlawfully Entering or Remaining in the 
United States), a circumstance not currently covered because the 
aggravated felony is not relevant conduct under the provisions of 
subsections (a)(1), (a)(2), or (a)(3) of Sec.  1B1.3.

(B) Adjustment for an Anticipated State Term of Imprisonment

    Synopsis of Proposed Amendment: Part B amends Sec.  5G1.3 to 
provide for an adjustment to a federal sentence in cases in which there 
is an anticipated, but not yet imposed, state term of imprisonment. 
Similar to Sec.  5G1.3(b), the new subsection (c) allows a court to 
adjust the federal sentence for any anticipated state term of 
imprisonment if subsection (a) does not apply, and a state term of 
imprisonment is anticipated to result from another offense that is 
relevant conduct to the instant offense of conviction under the 
provisions of subsections (a)(1), (a)(2), or (a)(3) of Sec.  1B1.3 
(Relevant Conduct). The proposed amendment brackets for comment whether 
a sentencing court shall or whether it may adjust such a defendant's 
sentence for any anticipated period of imprisonment. The proposed 
amendment also brackets for comment whether the other offense must also 
be the basis for an increase in the offense level for the instant 
offense under Chapter Two (Offense Conduct) or Chapter Three 
(Adjustments), or whether, as in Part A, this requirement should be 
removed. An issue for comment is also included.
Proposed Amendment
    Section 5G1.3 is amended in the heading by adding at the end ``or 
Anticipated State Term of Imprisonment''.
    Section 5G1.3 is amended by redesignating subsection (c) as 
subsection (d); and by inserting after subsection (b) the following new 
subsection (c):
    ``(c) If subsection (a) does not apply, and a state term of 
imprisonment is anticipated to result from another offense that is 
relevant conduct to the instant offense of conviction under the 
provisions of subsections (a)(1), (a)(2), or (a)(3) of Sec.  1B1.3 
(Relevant Conduct) [and that was the basis for an increase in the 
offense level for the instant offense under Chapter Two (Offense 
Conduct) or Chapter Three (Adjustments)], the court [may][shall] adjust 
the sentence for any anticipated state term of imprisonment if the 
court determines that such period of imprisonment will not be credited 
to the federal sentence by the Bureau of Prisons.''.
    The Commentary to Sec.  5G1.3 captioned ``Application Notes'' is 
amended by redesignating Notes 3 and 4 as Notes 4 and 5, respectively; 
by inserting after Note 2 the following new Note 3:
    ``3. Application of Subsection (c).--Subsection (c) applies to 
cases in which the federal court anticipates that, after the federal 
sentence is imposed, the defendant may be sentenced in state court and 
will serve a state sentence before being transferred to federal custody 
for federal imprisonment. In such a case, where the other offense is 
relevant conduct to the instant offense of conviction under the 
provisions of subsections (a)(1), (a)(2), or (a)(3) of Sec.  1B1.3 
(Relevant Conduct) [and was the basis for an increase in the offense 
level for the instant offense under Chapter Two (Offense Conduct) or 
Chapter Three (Adjustments)], the court [may][shall] adjust the 
sentence for the period of time anticipated to be served in state 
custody. To avoid confusion with the Bureau of Prisons' exclusive 
authority provided under 18 U.S.C. Sec.  3585(b) to grant credit for 
time served under certain circumstances, the Commission recommends that 
any such adjustment be clearly stated on the Judgment in a Criminal 
Case Order as an adjustment pursuant to Sec.  5G1.3(c), rather than as 
a credit for time served.'';

in Note 4 (as so redesignated) by striking ``(c)'' and inserting 
``(d)'';

in each of subparagraphs (A), (B), (C), (D), and (E) by striking 
``(c)'' each place such term appears and inserting ``(d)'';

and in subparagraph (E) by striking ``subsection (b)'' and inserting 
``subsections (b) and (c)''.
Issue for Comment
    1. The Commission seeks comment on whether there are cases in which 
a federal court anticipates that a period of time spent by the 
defendant in pretrial custody in connection with the anticipated state 
sentence will not be credited to the federal sentence by the Bureau of 
Prisons. How, if at all, should the guidelines account for such cases? 
Should the guidelines allow the federal court to adjust the sentence 
for that period of time? Should the guidelines provide a departure 
provision to account for such cases?

(C) Sentencing of Deportable Aliens With Unrelated Terms of 
Imprisonment

    Synopsis of Proposed Amendment: Part C amends Sec.  5G1.3 by adding 
a new subsection (c) to provide for an adjustment if a defendant is a 
deportable alien who is likely to be deported after imprisonment and 
the defendant is serving an undischarged term of imprisonment that 
resulted from an unrelated offense. The proposed amendment brackets for 
comment whether a sentencing court shall or whether it may adjust such 
a defendant's sentence for any period of imprisonment already served on 
the undischarged term. It also brackets for comment whether the new 
subsection (c) should apply notwithstanding whether either subsection 
(a) or (b) of Sec.  5G1.3 would ordinarily apply to the defendant, or 
whether subsection (c) only applies if subsection (a), relating to 
offenses committed while serving a sentence of imprisonment, does not 
otherwise apply to the defendant. The proposed amendment also adds a 
new application note to the commentary to Sec.  5G1.3 describing the 
new subsection (c) and providing an example of its application.
    The proposed amendment further amends Sec.  5K2.23 to provide that 
if a defendant who is a deportable alien who is likely to be deported 
after imprisonment has completed serving a term of imprisonment and the 
proposed subsection (c) of Sec.  5G1.3 would have provided an 
adjustment had that completed term of imprisonment been undischarged at 
the time of sentencing for the instant offense, a departure is 
warranted. The commentary to Sec.  5G1.3 is also amended in Note 4 
(related to downward departures) to reflect the change to Sec.  5K2.23.
    An issue for comment is also included requesting comment on whether 
the proposed amendment should instead amend Sec.  2L1.2 (Unlawfully 
Entering or Remaining in the United States) to provide for a downward 
departure.
Proposed Amendment
    Section 5G1.3 is amended by redesignating subsection (c) as 
subsection (d), and by inserting after subsection (b) the following new 
subsection (c):

[[Page 3300]]

    ``(c) Notwithstanding subsection[s (a) and] (b), if the defendant 
is a deportable alien who is likely to be deported after imprisonment 
and is serving an undischarged term of imprisonment that resulted from 
an unrelated offense, the court [may][shall] adjust the sentence for 
any period of imprisonment already served on the undischarged term if 
the court determines that such period of imprisonment will not be 
credited to the federal sentence by the Bureau of Prisons.''.
    The Commentary to Sec.  5G1.3 captioned ``Application Notes'' is 
amended in Note 2(A) by striking ``subsection (c)'' and inserting 
``subsections (c) and (d)'';

by redesignating Notes 3 and 4 as Notes 4 and 5, respectively;

by inserting after Note 2 the following new Note 3:

    ``3. Application of Subsection (c).--
    (A) In General.--Subsection (c) applies in cases in which the 
defendant is a deportable alien who likely will be deported after 
imprisonment and the defendant is serving an undischarged term of 
imprisonment for an unrelated offense. In such a case, the court 
[may][shall] adjust the defendant's sentence to account for any time 
already served on the undischarged term.
    (B) Example.--The following is an example in which subsection (c) 
applies and an adjustment to the sentence is appropriate:
    The defendant is convicted of a federal offense for illegal reentry 
after conviction for an aggravated felony. The defendant received a 
ten-month sentence of imprisonment for an unrelated state offense and 
has served four months on that sentence at the time of sentencing on 
the instant federal offense. The guideline range applicable to the 
defendant is 18-24 months (Chapter Two offense level of 16 based on 
base offense level of 8 and 8-level increase for aggravated felony; 3-
level reduction for acceptance of responsibility; final offense level 
of 13; Criminal History Category III). The court determines that the 
defendant is a deportable alien who likely will be deported after 
imprisonment and a sentence of 18 months provides the appropriate total 
punishment. Because the defendant has already served four months on the 
unrelated state charge as of the date of sentencing on the instant 
federal offense, a sentence of 14 months achieves this result.'';

in Note 4 (as so redesignated) by striking ``(c)'' and inserting 
``(d);''
in each of subparagraphs (A), (B), (C), (D), and (E) by striking 
``(c)'' each place such term appears and inserting ``(d)''; and
in subparagraph (E) by striking ``subsection (b)'' and inserting 
``subsections (b) and (c)'';
and in Note 5 by inserting after ``subsection (b)'' the following: ``or 
(c)''.
    Section 5K2.23 is amended by inserting after ``subsection (b)'' the 
following: ``or (c)''.

Issue for Comment
    1. The Commission seeks comment on whether the guidelines should 
instead address this issue by adding a downward departure provision. 
For instance, several courts have fashioned a downward departure for 
those defendants still subject to undischarged state sentences to 
account for the delay between when an illegal reentry defendant is 
``found'' by immigration authorities and when such a defendant is 
brought into federal custody. See, e.g., United States v. Sanchez-
Rodriguez, 161 F.3d 556, 563-64 (9th Cir. 1998) (affirming downward 
departure on the basis that, because of the delay in indicting and 
sentencing the defendant with illegal reentry, he lost the opportunity 
to serve a greater portion of his state sentence concurrently with his 
federal sentence); United States v. Barrera-Saucedo, 385 F.3d 533, 537 
(5th Cir. 2004) (holding that ``it is permissible for a sentencing 
court to grant a downward departure to an illegal alien for all or part 
of time served in state custody from the time immigration authorities 
locate the defendant until he is taken into federal custody''); see 
also United States v. Los Santos, 283 F.3d 422, 428-29 (2d Cir. 2002) 
(departure appropriate if the delay was either in bad faith or 
unreasonable).
    Should the Commission include a downward departure in '2L1.2 
(Unlawfully Entering or Remaining in the United States) similar to 
those approved by the circuit courts above? Examples of such a downward 
departure are the following:
    Example 1:
    Departure Based on Unrelated State Sentence.--There may be cases in 
which the defendant is a deportable alien who likely will be deported 
after imprisonment and is serving [or has served] a sentence for an 
unrelated state crime. In such a case, a departure may be warranted to 
account for the time the defendant has already served in state custody.
    Example 2:
    Departure Based on Unrelated State Sentence.--There may be cases in 
which the defendant is a deportable alien who likely will be deported 
after imprisonment and is serving [or has served] a sentence for an 
unrelated state crime. In such a case, a departure may be warranted to 
account for the defendant's lost opportunity to serve a greater portion 
of his state sentence concurrently with his federal sentence.

[FR Doc. 2014-00882 Filed 1-16-14; 8:45 am]
BILLING CODE 2210-40-P