Federal Courts: Differences Exist In Ordering Fines and Restitution (Letter Report, 05/06/99, GAO/GGD-99-70). Pursuant to a congressional request, GAO provided information on federal offenders who were ordered to pay criminal fines and victim restitution, focusing on: (1) the percentage of offenders who were ordered to pay fines or restitution in fiscal year (FY) 1997 and those who were not; (2) differences across judicial circuits and districts in the percent of offenders who were ordered to pay fines or restitution and those who were not; and (3) officials' opinions about possible reasons for those differences. GAO noted that: (1) while many factors influenced whether an offender was ordered to pay a fine or restitution, the judicial circuit or district where the offender was sentenced was a major factor during fiscal year (FY) 1997; (2) most of the approximately 48,000 federal offenders sentenced under United States Sentencing Commission Guidelines in FY 1997 were not ordered by the courts to pay a fine or restitution; (3) the percentage of offenders who were ordered to pay fines or restitution varied greatly across the 12 federal judicial circuits and 94 federal judicial districts; (4) across districts, the percentage of offenders who were ordered to pay fines ranged from 1 percent to 84 percent, and the percentage of the offenders who were ordered to pay restitution ranged from 3 percent to 49 percent; (5) an important factor in determining whether an offender was ordered to pay a fine or restitution was the type of offense committed; (6) while 6 percent of offenders sentenced for immigration offenses were ordered to pay a fine, almost one-third of property offenders were ordered to pay; (7) besides the type of offense committed, other factors that were associated with whether an offender was ordered to pay included factors such as sex, race, education, citizenship, length of sentence, and type of sentence imposed, such as prison, probation, or an alternative; (8) even after controlling for all of these factors for four specific types of offenses in GAO's multivariate statistical analyses, the judicial circuit or district in which the offender was sentenced continued to be a major factor in determining whether an offender was ordered to pay a fine or restitution; (9) some court officials and prosecutors provided explanations of why differences existed among the districts; (10) some attributed the differences to the nature and type of offenses committed or types of offenders sentenced in the districts; (11) some officials believed that the culture in the judicial district among the prosecutors and court officials contributed to whether offenders were fined or ordered to pay restitution; and (12) since the imposition of restitution for certain offenses became mandatory with the passage of Mandatory Victims Restitution Act (MVRA), the percentage of offenders, overall, who were ordered to pay restitution during FY 1997 actually declined from 26 percent of offenders sentenced for crimes committed before April 24, 1996, to 12 percent of offenders sentenced for crimes committed on or after April 24, 1996, when MVRA became effective. --------------------------- Indexing Terms ----------------------------- REPORTNUM: GGD-99-70 TITLE: Federal Courts: Differences Exist In Ordering Fines and Restitution DATE: 05/06/99 SUBJECT: Fines (penalties) Law enforcement Restitution Comparative analysis Crimes or offenses Federal courts Criminals IDENTIFIER: Crime Victims Fund ****************************************************************** ** This file contains an ASCII representation of the text of a ** ** GAO report. 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For further details, please ** ** send an e-mail message to: ** ** ** **** ** ** ** with the message 'info' in the body. ** ****************************************************************** FEDERAL COURTS: Differences Exist In Ordering Fines and Restitution (GAO/GGD-99-70) FEDERAL COURTS Differences Exist In Ordering Fines and Restitution United States General Accounting Office GAO Report to the Chairman, Senate Committee on the Judiciary, and the Chairman, Subcommittee on Crime, House Committee on the Judiciary May 1999 GAO/GGD-99-70 May 1999 GAO/GGD-99-70 United States General Accounting Office Washington, D. C. 20548 General Government Division B-279743 Page 1 GAO/GGD-99-70 Federal Courts GAO May 6, 1999 The Honorable Orrin G. Hatch Chairman, Committee on the Judiciary United States Senate The Honorable Bill McCollum Chairman, Subcommittee on Crime Committee on the Judiciary House of Representatives As you requested, this report discusses federal offenders who were ordered to pay criminal fines and victim restitution. The objectives of this report are to (1) identify the percentage of offenders who were ordered to pay fines or restitution in fiscal year 1997 and those who were not, (2) identify differences across judicial circuits and districts in the percent of offenders who were ordered to pay fines or restitution and those who were not, and (3) provide officials' opinions about possible reasons for those differences. Based on discussions with your staff, we also documented changes in the rate at which offenders were ordered to pay restitution before and after the Mandatory Victims Restitution Act (MVRA) (title II of P. L. 104- 132) was enacted April 24, 1996. This is the second of two reports concerning victim restitution and criminal fines based on your request. Our first report 1 concerned how offenders are required to make payments on fines and restitution that have already been ordered, including the guidelines available for determining payment schedules and how payment schedules were established. Individuals convicted of a federal crime can be ordered by the court to pay a fine or restitution at sentencing. Criminal fines, which are punitive, are to be paid in most cases to the Department of Justice's (DOJ) Crime Victims Fund. United States Sentencing Commission (USSC) Guidelines provide guidance on the minimum and maximum fine amounts to be imposed by the courts based on the offense. In establishing the USSC, Congress sought, as one objective, uniformity in sentencing by narrowing the wide disparity in sentences imposed for similar criminal offenses committed by similar offenders. Fines may be waived if the offender establishes that he or she is unable to pay and is not likely to become able to pay a fine. MVRA reformed restitution law and now requires the court to order full restitution in certain cases to each victim in the full amount of each 1 Fines and Restitution: Improvement Needed in How Offenders' Payment Schedules Are Determined (GAO/GGD-98-89; June 29, 1998). B-279743 Page 2 GAO/GGD-99-70 Federal Courts victim's losses, without regard to the offender's economic situation. Previously, as with fines, the court could waive restitution, in most cases, based on the offender's inability to pay. While many factors influenced whether an offender was ordered to pay a fine or restitution, the judicial circuit or district where the offender was sentenced was a major factor during fiscal year 1997. The large statistical variation among judicial circuits and districts raises a question, on a broad level, about whether the objective of uniformity in the imposition of fines and restitution is being met. Most of the approximately 48,000 federal offenders sentenced under USSC Guidelines in fiscal year 1997 were not ordered by the courts to pay a fine or restitution. About 19 percent were fined by the courts and about 20 percent were ordered to pay restitution. The percentage of offenders who were ordered to pay fines or restitution varied greatly across the 12 federal judicial circuits and 94 federal judicial districts. Across districts, for example, the percentage of offenders who were ordered to pay fines ranged from 1 percent to 84 percent, and the percentage of the offenders who were ordered to pay restitution ranged from 3 percent to 49 percent. The likelihood of an offender being ordered to pay fines or restitution could have been three times or more greater in one federal judicial district than in an adjacent district. An important factor in determining whether an offender was ordered to pay a fine or restitution was the type of offense committed. While 6 percent of offenders sentenced for immigration offenses were ordered to pay a fine, almost one- third of property offenders were ordered to pay. Similarly, while 1 percent of drug offenders were ordered to pay restitution, almost two- thirds of fraud offenders were ordered to pay. Besides the type of offense committed, other factors, based on our statistical analyses, that were associated with whether an offender was ordered to pay included factors such as sex, race, education, citizenship, length of sentence, and type of sentence imposed, such as prison, probation, or an alternative. However, even after controlling for all of these factors for four specific types of offenses in our multivariate statistical analyses, the judicial circuit or district in which the offender was sentenced continued to be a major factor in determining whether an offender was ordered to pay a fine or restitution. Some court officials and prosecutors provided explanations of why differences existed among the districts. Some attributed the differences to Results in Brief B-279743 Page 3 GAO/GGD-99-70 Federal Courts the nature and type of offenses committed or types of offenders sentenced in the districts. Some officials believed that the culture in the judicial district among the prosecutors and court officials contributed to whether offenders were fined or ordered to pay restitution. The culture included how prosecutors and court officials worked together to identify victims and their losses, among other factors. Since the imposition of restitution for certain offenses became mandatory with the passage of MVRA, the percentage of offenders, overall, who were ordered to pay restitution during fiscal year 1997 actually declined from 26 percent of offenders sentenced for crimes committed before April 24, 1996, to 12 percent of offenders sentenced for crimes committed on or after April 24, 1996, when MVRA became effective. The differences in the likelihood of offenders being ordered to pay restitution for crimes committed before and after MVRA became effective varied for specific types of offenses; for example, the percentage of offenders ordered to pay restitution increased for robbery offenses but decreased for larceny and fraud offenses. Some court officials and prosecutors believed that it was still too early to see the full impact of MVRA. These officials commented that time is needed to become familiar with and implement the act. They said that there may also be mitigating circumstances, such as the recovery of stolen money in a robbery, to explain why restitution was not ordered in a particular case. Congress divided the country into 94 federal judicial districts, and in each district there is a federal district court. The U. S. district courts are the federal trial courts the places where cases are tried, witnesses testify, and juries serve. Congress placed each of the 94 districts in one of 12 regional circuits, and each circuit has a court of appeals. If a trial is lost in district court, the case can be appealed, and the court of appeals can review the case to see if the district judge applied the law correctly. Figure 1 depicts a map of the United States that shows the geographical boundaries of the 94 district courts and the 12 regional circuit courts (including 11 numbered circuits and the District of Columbia Circuit.) There is also a Federal Circuit whose court of appeals is based in Washington, D. C., but hears certain types of cases from all over the country. The Court of Claims is the trial court from which the appeal arises for the Federal Circuit. Background B-279743 Page 4 GAO/GGD-99-70 Federal Courts Source: Administrative Office of the U. S. Courts data. Under the law, offenders in federal court may be ordered to pay a fine or restitution at sentencing. The court is to impose a fine in all cases, except where the defendant establishes that he or she is unable to pay and is not Figure1: Geographical Boundaries of Twelve Regional Circuit Courts Including the District of Columbia and Ninety Four State District Courts B-279743 Page 5 GAO/GGD-99-70 Federal Courts likely to become able to pay any fine, according to guidelines issued by the USSC, 2 which interpret federal law. In establishing the USSC, Congress sought, as one objective, uniformity in sentencing by narrowing the wide disparity in sentences imposed for similar criminal offenses committed by similar offenders. USSC's Guidelines state that the amount of the fine should always be sufficient to ensure that the fine, taken together with other sanctions imposed, is punitive. Except where the fine is established by specific statute, the fine should be within a range established by the USSC. The range is based on the offense level. The base offense level, which is a numerical score, is established in the Guidelines for each type of crime. Adjustments can be made to the base offense level for such things as offense characteristics, offender's role, the victim, obstruction of justice, and acceptance of responsibility. For example, the Guideline range for fines for offense level 8 is $1, 000 to $10,000; for offense level 38 the guideline range for fines is from $25,000 to $250,000. There is also a criminal history category that helps the judge determine whether an offender should be sentenced higher or lower within the Guideline range. According to the USSC Guidelines, in determining the amount of the fine, the court should consider, among other factors, the need for the combined sentence to (1) reflect the seriousness of the offense (including the harm or loss to the victim and the gain to the defendant), (2) promote respect for the law, (3) provide just punishment, and (4) afford adequate deterrence. According to the USSC Guidelines, the court should also consider any evidence presented on the offender's ability to pay a fine in light of the offender's earning capacity and financial resources, as well as the burden that the fine places on the offender and his or her dependants, any restitution or civil obligations the offender is required to make, other consequences of conviction such as civil obligations, whether the offender has been previously fined for a similar offense, and any other pertinent equitable considerations. The court may waive the fine or impose a lesser fine if it has been established that the offender is not able and is not likely to become able to pay all or part of the fine, even with the use of a reasonable installment schedule. The court may also waive the fine or impose a lesser fine if the imposition of a fine would unduly burden the defendant's dependents. 2 USSC was created by Congress in the Sentencing Reform Act of 1984, P. L. 98- 473. The act required USSC to develop a system of sentencing guidelines. B-279743 Page 6 GAO/GGD-99-70 Federal Courts Since passage of the Victims of Crime Act of 1984 (P. L. 98- 473), most fines have been used to support DOJ's Crime Victims Fund. The fund provides, among other things, grants for victim assistance programs and compensation to victims. Restitution is to be paid to the victim of the crime and should reflect actual losses suffered as a result of the crime. However, mandatory restitution as part of a federal criminal sentence is a relatively recent idea. Initially, the courts did not recognize restitution as a separate term of a criminal sentence. This changed with the Victim and Witness Protection Act of 1982 (P. L. 97- 291), which was the first statute that broadly addressed victim restitution in general. Before enactment, imposition of an order of restitution was completely within the discretion of the court and could only be ordered as a condition of probation. Later, in 1992, with the enactment of the Child Support Recovery Act (P. L. 102- 521), Congress introduced the idea of mandatory restitution into federal law. The act mandated that courts impose restitution on defendants convicted of willful failure to pay past due child support. In the Violence Against Women Act of 1994 (title IV of P. L. 103- 322), Congress identified certain other types of crimes subject to mandatory restitution, such as sexual abuse, sexual exploitation and other abuse of children, domestic violence, and telemarketing. On April 24, 1996, MVRA was enacted as title II of the Antiterrorism and Effective Death Penalty Act of 1996 (P. L. 104- 132), reforming restitution and altering the way it is to be enforced. MVRA now requires the court to order restitution for each offender who has been convicted or has pled guilty to the following charges, without regard to the offender's economic situation: a crime of violence (as defined in 18 U. S. C. 16); an offense against property under title 18 of the U. S. Code, including any offense committed by fraud or deceit; or an offense relating to tampering with consumer products (18 U. S. C. 1365). According to MVRA, there must be an identifiable victim or victims who have suffered a physical injury or monetary loss. The only other exception to mandatory restitution is for an offense against property if the court finds that the number of identifiable victims is so large that it makes paying restitution impractical or B-279743 Page 7 GAO/GGD-99-70 Federal Courts determining complex issues of fact related to the cause or amount of the victims' losses would complicate or prolong the sentencing process to a degree that the need to provide restitution to any victim is outweighed by the burden on the sentencing process. Prior to MVRA, the law provided that the court could consider, in determining whether to impose an order of restitution, the financial resources of the offender, the financial needs of the offender and his or her dependents, and other factors the court deemed appropriate. Under MVRA, the court cannot waive restitution based on the offender's economic circumstances. However, the court can order the offender to make nominal periodic payments if the offender's economic circumstances do not allow for (1) the payment of any amount of a restitution order or (2) the payment of the full amount in the foreseeable future, under any reasonable schedule of payments. According to the legislative history, an intent of MVRA was to establish one set of procedures for the issuance of restitution orders in federal criminal cases. The history cited fiscal year 1994 USSC statistics that showed that about 20 percent of federal criminal cases had restitution orders. The history also cited rates for specific types of crimes, such as about 55 percent of offenders sentenced for robbery were ordered to pay restitution. The history cited these figures as indications that more progress in ordering restitution remained to be made. The objectives of this report are to (1) identify the percentage of offenders who were ordered to pay fines or restitution in fiscal year 1997 and those who were not, (2) identify differences across judicial circuits and districts in the percent of offenders who were ordered to pay fines or restitution and those who were not, and (3) provide officials' opinions about possible reasons for those differences. We also documented changes in the rate at which offenders were ordered to pay restitution before and after MVRA was enacted April 24, 1996. To identify the number of offenders who were ordered to pay fines or restitution and those who were not, we used USSC data for fiscal year 1997. USSC maintains a computerized data collection system, which forms the basis for its clearinghouse of federal sentencing information. USSC requests that each probation office in each judicial district submit the following documents on every defendant sentenced under the guidelines: indictments, presentence report, Objectives, Scope, and Methodology B-279743 Page 8 GAO/GGD-99-70 Federal Courts report on the sentencing hearing, written plea agreement, and judgment of conviction. Data from these documents are extracted and coded for input into USSC's databases. We did not independently verify the accuracy of the USSC data. However, USSC takes several steps to insure the reliability and completeness of the data system. To identify the differences across the judicial circuits and districts in the percentage of offenders who are ordered to pay fines or restitution and those who are not, we used USSC's data for fiscal year 1997 to identify the percentage of offenders who received a fine or restitution by court district. Because we found that type of offense was strongly related to whether fines or restitution was ordered, we also analyzed the differences among judicial circuits and districts in fines and restitution ordered by selected types of offenses. To determine the percentage of offenders ordered to pay fines, we selected larceny, fraud, and drug trafficking crimes because of the large number of offenders sentenced under USSC guidelines in federal courts for these crimes. To determine the percentage of offenders ordered to pay restitution, we selected robbery, larceny, and fraud crimes because (1) there were a large number of offenders sentenced in federal courts and (2) these crimes involve an act upon another person, so we believed there was the reasonable expectation of an identifiable victim. To identify possible reasons for sentencing differences among judicial circuits and districts, we analyzed the overall percent of fines and restitution ordered by circuits and districts and for the specific types of crimes we chose. In performing our analysis, we first considered all federal offenders and how the likelihood of being ordered to pay fines or restitution was affected by selected demographic characteristics of the offenders (sex, race, citizenship, education, and number of dependents); the type of offense they committed (whether it involved property, drugs, firearms, fraud, immigration, a violent or other offense); characteristics of the offender's sentence (whether it occurred before or after MVRA was enacted, whether the offender was sentenced to prison, probation, or an alternative sentence imposed, and whether there was more than a single count of conviction); and the circuit and district in which the sentencing occurred. B-279743 Page 9 GAO/GGD-99-70 Federal Courts We found that a number of factors were strongly associated with whether fines or restitution were ordered and that the type of offense was one of the most important. Therefore, we conducted a series of multivariate statistical analyses for specific types of offenses to estimate the effects of the other factors on fine and restitution orders, independent of one another. We used logistic regression techniques to estimate, simultaneously, the effects of these different factors on the odds of an offender being ordered to pay restitution among larceny, robbery, and fraud offenses and then to estimate the effects of these factors on the odds of an offender being ordered to pay fines among larceny, drug trafficking, and fraud offenses. 3 In one series of regression models, we employed circuit as one of our independent variables to determine how much variation across circuits in the odds on ordering fines and restitution persisted for these types of offenders after other factors were controlled. In a second series of regressions, we restricted our attention to offenders in the 10 largest districts, based on the number of offenders sentenced during fiscal year 1997 for each of the 4 types of offenses selected, to get a sense of the extent of variation across districts. (It was not always the same 10 districts for each type of crime.) There were not sufficient numbers of offenders ordered to pay fines for robbery offenses or restitution for drug trafficking offenses in the districts for us, in our opinion, to reliably perform the multivariate statistical analyses in those cases. We also believed it would be too time consuming to perform the multivariate statistical analyses for offenders sentenced for all types of federal offenses separately in all 94 districts. We interviewed officials from the DOJ's Executive Office of the U. S. Attorneys, the Administrative Offices of the U. S. Courts (AOUSC), USSC, and selected Federal District Courts to obtain their opinions of why the differences existed in the percentage of offenders ordered to pay fines and 3 The statistical terms probability, odds, and odds ratio are used in this report. Probability, expressed as a proportion or percentage, is the ratio of the number of outcomes that will produce a specific event to the total number of possible outcomes. For example, the probability of an offender being ordered to pay a fine was 0. 19 (19 out of every 100 offenders, or 19 percent, were so ordered.) However, probability is limited by the bounds of 0 and 100. For comparison purposes, odds are better than probability because they are not restricted by these boundaries. Odds is the ratio of the probability of an event occurring to the probability of it not occurring. For example, the odds of an offender being ordered to pay a fine was 0. 23 (19 of 100 ordered to pay divided by the 81 of 100 who were not). More simply, odds of 0.23 means that 23 were ordered to pay a fine for every 100 who were not. We compare odds by taking odds ratios. For example, the odds ratio is determined by dividing the odds of an offender being ordered to pay restitution in a circuit by the odds of an offender being ordered to pay restitution in the referent circuit. The referent circuit is the circuit in which an offender has the lowest odds of being ordered to pay restitution before controlling for other factors that might affect whether restitution is ordered. Odd ratios are, perhaps, most easily understood in terms of times as likely. For instance, an odds ratio of 4. 5 would be interpreted as 4.5 times as likely as in the referent circuit. B-279743 Page 10 GAO/GGD-99-70 Federal Courts restitution and their views about the effect of mandatory victim restitution. We limited our discussions to district courts in the largest judicial districts, based on number of offenders sentenced for each of the four types of offenses. We selected these districts first because they were among the districts that met the criteria for our multivariate statistical analyses. We then narrowed our selection to seven districts in two parts of the country where at least one district was adjacent to another and there appeared to be variation in the percent of offenders ordered to pay fines or restitution. Those seven districts were the Eastern District of Pennsylvania, the District of New Jersey, the Southern District of New York, the Eastern District of New York, the Northern District of California, the Central District of California, and the Southern District of California. At each district, we interviewed the Chief Judge, the U. S. Attorney, and the Chief Probation Officer or a representative selected by that official. However, we did not review court case files at each district. A review of court case files would have been time consuming and might not have provided the reason why a fine or restitution was or was not ordered in a particular case. We did our work from August 1998 through January 1999 in accordance with generally accepted government auditing standards. We requested comments from DOJ, USSC, and AOUSC. We obtained written comments from DOJ and USSC. AOUSC provided technical comments. These comments are summarized at the end of this letter and are contained in appendixes III and IV. All three agencies provided technical corrections and suggestions. According to our analysis of USSC data, of the approximately 48,000 federal offenders sentenced in fiscal year 1997 under USSC guidelines, about 9,000 (19 percent) were ordered to pay fines and 9,600 (20 percent) were ordered to pay restitution. About 2 percent were ordered to pay both fines and restitution. The total amount of fines and restitution ordered was over $1.6 billion dollars. The percent of federal offenders sentenced that were ordered to pay fines and restitution varied substantially across the 12 federal circuits. Figure 2 shows the percent of offenders ordered to pay fines ranged from 7 percent in the D. C. Circuit to 42 percent in the Seventh Circuit, which includes Illinois, Indiana, and Wisconsin. Figure 3 shows the percent of offenders who were ordered to pay restitution ranged from 15 percent in the Fifth Circuit, which includes Texas, Louisiana, and Mississippi, to 32 percent in the Seventh Circuit. Table I. 2 in appendix I shows the percent of offenders ordered to pay fines or restitution, by judicial circuit. Numbers and Percent of Federal Offenders Ordered to Pay Fines or Restitution Percent of Federal Offenders Ordered to Pay Fines or Restitution by Judicial Circuit or District B-279743 Page 11 GAO/GGD-99-70 Federal Courts Source: GAO analysis of fiscal year 1997 USSC data. Figure2: Percent of Offenders Ordered to Pay Fines, by Circuit B-279743 Page 12 GAO/GGD-99-70 Federal Courts Source: GAO analysis of fiscal year 1997 USSC data. The 94 federal judicial districts also differed greatly in the percent of offenders ordered to pay fines, ranging from a low of 1 percent of the offenders sentenced in the Eastern District of Oklahoma to a high of 84 percent in the Southern District of Illinois. The rate at which offenders were ordered to pay restitution also varied from 3 percent in the Southern District of California to 49 percent in the Western District of Wisconsin. The rate at which offenders were ordered to pay fines or restitution might be three times or more greater in one district than in an adjacent district. According to court officials, there should be less variation in the types of offenses committed among adjacent districts than there might be among districts located in different parts of the country. For example, while 45 percent of the offenders in the district of New Jersey were ordered to pay fines, 12 percent of the offenders in the Eastern District of New York, which includes Staten Island and Long Island, were ordered to pay. Similarly, while 22 percent of the offenders in the District of New Jersey were ordered to pay restitution, 9 percent of the offenders in the Eastern District of New York were ordered to pay. Table I. 3 in appendix 1 shows Figure3: Percent of Offenders Ordered to Pay Restitution, by Circuit B-279743 Page 13 GAO/GGD-99-70 Federal Courts the variation by district in offenders ordered to pay fines or restitution for all 94 judicial districts. While many factors influence whether an offender was ordered to pay a fine or restitution, the judicial circuit or district where the offender was sentenced was a major factor. Our initial statistical analysis of all 12 judicial circuits and 94 districts showed major variation among the judicial circuits and districts in the likelihood of an offender being ordered to pay a fine or restitution. However, there was also a strong association between the type of offense committed and the likelihood of an offender being ordered to pay a fine or restitution. We then performed a multivariate statistical analysis for offenders sentenced for four types of offenses robbery, larceny, fraud, and drug trafficking and controlled for such things, among others, as offender characteristics, type of crime committed, length of sentence, and type of sentence imposed such as prison, probation, or an alternative. We selected these four types of offenses because they were well- represented in the number of offenders sentenced in the districts. We performed our multivariate statistical analysis for the 10 largest districts in number of offenders sentenced under the Guidelines for each of the 4 types of offenses during fiscal year 1997. Our multivariate statistical analyses for the four types of offenses showed that the major variation among judicial circuits and districts, although less, persisted and the likelihood of an offender being ordered to pay fines or restitution for the same type of offense could still be many times greater in one judicial circuit or district than in another. We asked court officials and prosecutors in seven districts for possible explanations of why these differences might exist. We received some reasons related both to the nature of the crimes and the types of offenders sentenced in particular districts and to the culture of the courts and the prosecutor's office in the districts such as how well court officials and prosecutors work together to identify victims and their losses. Initially, we identified a number of potential reasons for the differences between the judicial circuits and districts in the likelihood of offenders being ordered to pay fines or restitution. Judicial circuits and districts varied substantially in the types of offenders who were sentenced. For example, the percentages of offenders sentenced for drug trafficking, robbery, and fraud varied by judicial circuit and district. Judicial circuits and districts also varied according to the demographic characteristics of offenders who were sentenced, such as the number of women, minorities, or noncitizens. There were also differences in the characteristics of offenders' sentences, such as whether they were sentenced to prison or Differences Among the Judicial Circuits and Districts in Ordering Fines or Restitution B-279743 Page 14 GAO/GGD-99-70 Federal Courts probation and the length of the sentence or amount of time the offender would be in custody. Our preliminary analysis showed that many of these characteristics affected whether offenders were ordered to pay fines or restitution. For example, the type of offense had a very pronounced effect. While 6 percent of immigration offenders were ordered to pay a fine, almost one- third of property offenders were likewise ordered. Similarly, while 1 percent of drug trafficking offenders were ordered to pay restitution, almost twothirds of fraud offenders were so ordered. Similar disparities in the likelihood of an offender being ordered to pay fines or restitution existed among those sentenced for such offenses as drug trafficking, fraud, and violence. Figures 4 and 5 show the percentage of offenders who were ordered to pay fines or restitution, by type of offense. Source: GAO analysis of fiscal year 1997 USSC data. Figure4: Percentages of Offenders Ordered to Pay Fines in Fiscal Year 1997, by Type of Crime B-279743 Page 15 GAO/GGD-99-70 Federal Courts Source: GAO analysis of fiscal year 1997 USSC data. Other factors related to the offender and the type of sentence also produced variations in the likelihood of an offender being ordered to pay a fine or restitution in our initial statistical analysis for all 12 judicial circuits and 94 judicial districts. For example, overall, females were more likely than males to be ordered to pay restitution and blacks less likely than whites. Also, overall, citizens were six times more likely to have restitution orders than noncitizens. Similar race differences existed in the likelihood of offenders being ordered to pay fines. Additionally, offenders who were sentenced to probation were much more likely to be ordered to pay a fine or restitution than those sent to prison. Better- educated offenders also were more likely to be ordered to pay a fine or restitution. Our comparison for these factors is presented in detail in table I. 1 of appendix 1. Given the effect of these characteristics, we did multivariate statistical analyses that reestimated the differences in fines and restitution across circuits and districts. In these analyses, we controlled for those characteristics. These analyses took into account differences in offenders' characteristics across these judicial locations and the effects of these characteristics on fine and restitution orders. We looked separately at fine orders among larceny, drug, and fraud offenders and separately at restitution orders for larceny, robbery, and fraud offenders. The statistical Figure5: Percentages of Offenders Ordered to Pay Restitution in Fiscal Year 1997, by Type of Crime B-279743 Page 16 GAO/GGD-99-70 Federal Courts analyses are presented in full in appendix I. Figures 6 through 11 show the differences among the 10 largest districts in number of offenders sentenced during fiscal year 1997 for fraud, larceny, robbery, and drug trafficking. Source: GAO analysis of fiscal year 1997 USSC data. Source: GAO analysis of fiscal year 1997 USSC data. Figure6: Percentage of Offenders Sentenced to Pay Fines for Larceny Offenses in Selected Districts Figure7: Percentage of Offenders Sentenced to Pay Restitution for Larceny Offenses in Selected Districts B-279743 Page 17 GAO/GGD-99-70 Federal Courts Source: GAO analysis of fiscal year 1997 USSC data. Source: GAO analysis of fiscal year 1997 USSC data. Figure8: Percentage of Offenders Sentenced to Pay Fines for Fraud Offenses in Selected Districts Figure9: Percentage of Offenders Sentenced to Pay Restitution for Fraud Offenses in Selected Districts B-279743 Page 18 GAO/GGD-99-70 Federal Courts Source: GAO analysis of fiscal year 1997 USSC data. Source: GAO analysis of fiscal year 1997 USSC data. Figure10: Percentage of Offenders Sentenced to Pay Fines for Drug Offenses in Selected Districts Figure11: Percentage of Offenders Sentenced to Pay Restitution for Robbery Offenses in Selected Districts B-279743 Page 19 GAO/GGD-99-70 Federal Courts Even after controlling for the characteristics mentioned above, we found that pronounced differences existed across judicial circuits and districts for fine and restitution orders. For example, we found that the likelihood of being ordered to pay restitution in some districts among offenders convicted of robbery was five or more times as high as in other districts. Drug trafficking offenders were 10 or more times as likely to be fined in some districts as in others. We found similar results for the other types of offenders and for both fines and restitution, with offenders in some districts many more times as likely to be ordered to pay as in others. Court officials and prosecutors we interviewed offered several possible explanations why restitution might not have been ordered in all cases. Some officials noted that there is rarely an identifiable victim in drug offenses, making an order to pay restitution unlikely. 4 These officials also identified bank robbers as being among the poorest of offenders who usually lack the ability to pay a fine, especially if restitution to the bank is ordered. Offenders who commit immigration offenses most likely are aliens who can be deported after being sentenced and serving any time that may be ordered; collection of a fine might be unlikely after deportation. While these explanations offered some reasons why fines or restitution might not be ordered in all cases, they do not explain why when controlling for offender characteristics, length of sentence, and type of sentence such as probation, prison, or an alternative offenders have a far greater likelihood of being ordered to pay a fine or restitution for the same type of offense in one district than in another. We asked court officials and prosecutors in seven of these districts what some possible explanations might be for differences between the districts. These 7 districts were among the 10 largest in number of offenders sentenced for each of the 4 types of offenses. The 10 largest districts were not always the same 10 districts for each of the 4 types of offenses. While some of these officials acknowledged that they did not know the reasons, other officials offered an explanation that the culture of the court and prosecutor's office within a district could be a factor. The culture included factors such as how the court views an offender's ability to pay fines, how well the civil and criminal attorneys work together in the prosecutor's office, or how well court officials and prosecutors cooperate - 4 MVRA expanded discretionary restitution by creating community restitution for victimless drug offenses (18 U. S. C. 3663c) allowing for the possibility of restitution, even when an identifiable victim is not involved. This provision was effective for offenses on or after November 1, 1997, the date the revised USSC Sentencing Guidelines went into effect. B-279743 Page 20 GAO/GGD-99-70 Federal Courts with each other in identifying victims and the amount of loss for restitution. Some officials who had worked in more than one district explained that the culture was very different among the districts in which they had worked. These officials explained that, when trying cases, the diligence with which prosecutors identified victims and their losses was greater in one district than in the other. In one district, officials said there was a greater reluctance to pursue restitution as part of the sentence because there was a strong belief among prosecutors that the offenders would not, in most cases, be able to pay it; whereas in another district, every opportunity was considered by the prosecutors in the prospect of an offender paying a fine or restitution as part of the sentence. Some criminal prosecutors noted that in the district to which they had transferred, civil attorneys sat in the same area as criminal prosecutors; and the civil attorneys, who are more focused on monetary issues, assisted criminal prosecutors in developing the financial aspects, such as restitution, in criminal cases. MVRA requires the court to order full restitution in certain cases, including most federal offenses involving a crime of violence or a crime against property. Prior to MVRA, the court could waive restitution, in most cases, based on the offender's ability to pay. MVRA's amendments are to be, to the extent constitutionally permissible, effective for sentencing proceedings in cases in which the defendant is convicted on or after the date of enactment, which was April 24, 1996. However, because of an ex post facto issue, DOJ has issued guidelines that any provisions of MVRA for determining whether to impose restitution or the amount of restitution would be applied only prospectively to offenses committed on or after April 24, 1996. In general, the ex post facto clause of the U. S. Constitution has been interpreted to prohibit the application of a law that increases the primary penalty for conduct after its commission. Our statistical analysis showed that the percentage of offenders ordered to pay restitution, overall, declined after MVRA went into effect, while the results of the multivariate statistical analysis for the four types of offenses were mixed on whether the percentage of offenders changed after MVRA became effective. Overall, for offenders sentenced during fiscal year 1997, 26 percent of offenders who were sentenced under the USSC Guidelines for crimes committed before MVRA went into effect were ordered to pay restitution, compared with 12 percent who were sentenced for crimes The Effect of MVRA on Restitution Orders B-279743 Page 21 GAO/GGD-99-70 Federal Courts committed after MVRA went into effect 5 (See table I. 1 in app. I.) Our multivariate statistical analyses showed inconsistent results across types of offenses. (See table I. 5 in app. I.) For all districts, offenders who committed fraud offenses after MVRA's effective date were about 80 percent as likely to be ordered to pay restitution as those who committed offenses before restitution became mandatory. Larceny offenders who were sentenced for crimes committed after MVRA went into effect were about half as likely to be ordered to pay restitution as those sentenced for crimes committed before MVRA went into effect. Robbers who were sentenced for crimes committed after MVRA went into effect were about one- third more likely to be ordered to pay restitution than robbers sentenced for crimes committed before MVRA went into effect. In discussing our results, some court officials and prosecutors said that it was still too early to assess the full impact of MVRA. Some officials commented that time is needed to become familiar with and implement MVRA, especially on the part of the Assistant U. S. Attorneys who prosecute cases covered by MVRA. Prosecutors in one district acknowledged that they were not yet fully implementing the law. Most prosecutors, however, commented that they did not remove an offender's responsibility for restitution when drafting plea agreements. 6 The judges we interviewed, in general, commented that they were implementing the law and did not have constitutional questions with MVRA. Although we selected larceny, fraud, and robbery because of the likelihood of a victim being due restitution, a substantial percentage of offenders about one- to two- thirds of offenders sentenced were still not ordered to pay restitution, even if their crimes were committed after MVRA was passed. Court officials and prosecutors provided some reasons why restitution might not have been ordered in these cases. In some cases, stolen money or assets might have been recovered. In other cases, an offender might have paid the restitution prior to sentencing, removing the need for a restitution order. Another reason cited by officials was that the offense might have been an attempted fraud or attempted robbery, and the offender was arrested prior to obtaining any money from the victim. Some officials also cited an exception to MVRA in ordering mandatory restitution, such as in cases where the number of victims is so large that it 5 For our analysis, for a crime to be considered subject to MVRA, it had to be identified in the database as having been committed on or after April 24, 1996. Overall, 55 percent of offenders in our database committed crimes after MVRA became effective. 6 This is consistent with MVRA because the mandatory restitution provisions of the act apply to plea agreements. B-279743 Page 22 GAO/GGD-99-70 Federal Courts makes paying restitution impracticable. One district had a number of telemarketing schemes in which large numbers of victims were defrauded of small amounts. It was not practical to identify all victims and obtain restitution for them. In response to our questions, Chief Probation Officers in the Northern District of California, which includes San Francisco, and the Central District of California, which includes Los Angeles, provided information from local databases on bank robbery cases where restitution had not been ordered. These databases were different from the USSC database, and the information covered different time periods. Information provided by the Chief Probation Officer in the Northern District of California showed that restitution was ordered in all bank robbery cases where there was monetary loss. However, restitution was not ordered in bank robbery cases where there was no loss or where the stolen money was recovered. In the Central District of California, the primary reason given when restitution had not been ordered as part of the sentence was, as in the Northern District, that there was no loss or that the stolen money had been recovered. We noted that, in some cases, probation officers recommended restitution, which would have been based on an actual loss, as part of the sentence; but the judge did not follow the recommendation and did not order restitution as part of the sentence. In other cases, the probation officer did not recommend restitution, and the judge did not order it. According to the Chief Probation Officer, the length of the sentences over 80 years in prison in 2 of the cases might have been a factor considered by the probation officer in not recommending to the judge that restitution be part of the sentence. Although offender characteristics, type of offense, and the nature of the sentence all played a role, the judicial circuit or district where an offender was sentenced was a major factor in determining the likelihood of an offender being ordered to pay a fine or restitution during fiscal year 1997. This major variation among judicial circuits and districts occurred overall for all federal offenders sentenced under sentencing guidelines during that year; and, although occurring less, this variation persisted when we performed multivariate statistical analysis for federal offenders sentenced under sentencing guidelines for four types of offenses. The large statistical variation among circuits and districts raises a question, on a broad level, about whether the goal of uniformity in the imposition of fines and restitution is being met. Offenders could be much more likely in some jurisdictions than in others to be ordered to pay a fine or restitution for the same type of crime. Conclusions B-279743 Page 23 GAO/GGD-99-70 Federal Courts Statistics for fiscal year 1997 are mixed on whether offenders were more likely to be ordered to pay restitution after MVRA, which was intended to eliminate much of the discretion judges previously had in waiving restitution for certain types of crime. Substantial percentages of offenders sentenced for crimes such as fraud, robbery, and larceny which, by their nature, indicate a need for restitution to a victim are not being sentenced to pay restitution by the courts. However, it may be too early to see the full impact of the results of the legislation; and there also may be mitigating circumstances, such as recovery of stolen money, in explaining why restitution was not ordered in a particular case. We requested comments from DOJ, USSC, and AOUSC. DOJ and USSC provided written comments on a draft of this report (see apps. III and IV). AOUSC provided technical comments. All three agencies provided technical corrections and suggestions. DOJ generally agreed with the findings in the draft and advised us of the steps that have been taken to help ensure that MVRA is properly implemented. These steps include memoranda providing guidance on MVRA and additional training efforts. DOJ's comments recognize that the imposition of restitution is critical to their law enforcement efforts and that, while a number of steps have been taken, more remains to be done to increase the number of cases in which restitution is imposed. USSC raised several issues. First, USSC noted that training efforts are planned or under way within the offices of the federal courts to provide guidance and training on the correct application of MVRA. Second, USSC also raised a general concern that the scope and conclusions of the report rely perhaps too heavily on use of the 1997 data. Although USSC acknowledges that 1997 data are the only data currently available to study MVRA, they believe that replicating the study using future data might mitigate the idiosyncrasies in any given year's caseload. While the scope suggested by USSC might be beneficial, USSC also does not provide any evidence that expanding the scope would change our overall conclusion that the judicial district or circuit where an offender was sentenced was a major factor in determining the likelihood of an offender being ordered to pay a fine or restitution. We incorporated other suggestions by USSC as appropriate. We have incorporated technical comments and suggestions from the three agencies in the final report, as appropriate. Agency Comments and Our Evaluation B-279743 Page 24 GAO/GGD-99-70 Federal Courts We are sending copies of this report to Patrick J. Leahy, the Ranking Minority Member of your committee, and Robert C. Scott, the Ranking Minority Member of your subcommittee; Charles E. Grassley, the Chairman, and Robert G. Torricelli, the Ranking Minority Member, of the Subcommittee on Administrative Oversight and the Courts, Senate Committee on the Judiciary; Henry J. Hyde, the Chairman, and John Conyers, Jr., the Ranking Minority Member, of the House Committee on the Judiciary; Leonidas Ralph Mecham, Director, AOUSC; Timothy B. McGrath, Interim Staff Director, U. S. Sentencing Commission; the Honorable Janet Reno, Attorney General; and other interested parties. Copies will be made available to others upon request. Major contributors to this report are listed in appendix V. If you have any questions about this report, please call me on (202) 512- 8777. Richard M. Stana Associate Director Administration of Justice Issues Page 25 GAO/GGD-99-70 Federal Courts *** End of document. ***