[Federal Register Volume 69, Number 227 (Friday, November 26, 2004)]
[Rules and Regulations]
[Pages 68791-68793]
From the Federal Register Online via the Government Printing Office [www.gpo.gov]
[FR Doc No: 04-26188]
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DEPARTMENT OF JUSTICE
Parole Commission
28 CFR Part 2
Paroling, Recommitting, and Supervising Federal Prisoners:
Prisoners Serving Sentences Under the United States and District of
Columbia Codes
AGENCY: Parole Commission, Justice.
ACTION: Final rule.
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SUMMARY: The U.S. Parole Commission is adding a procedural rule to
provide that parole revocation and reparole decisions resulting from a
revocation hearing for a District of Columbia Code offender may be
administratively appealed. With this change, the Commission is also
amending several rules to permit the initial decisions in DC parole
revocation cases to be made by one Commissioner. Extending an appeal
procedure to revoked DC parolees provides an avenue for these parolees
to seek administrative correction of alleged errors in revocation
proceedings and to present their views before a second Commissioner.
The rule changes further the Commission's goal of greater uniformity in
decision-making procedures for all cases within the Commission's
jurisdiction.
DATES: Effective Date: December 27, 2004.
FOR FURTHER INFORMATION CONTACT: Office of General Counsel, U.S. Parole
Commission, 5550 Friendship Blvd., Chevy Chase, Maryland 20815,
telephone (301) 492-5959. Questions about this publication are welcome,
but inquiries concerning individual cases cannot be answered over the
telephone.
SUPPLEMENTARY INFORMATION: Since the Parole Commission assumed the
revocation functions of the former District of Columbia Board of Parole
in August 2000 under the National Capital Revitalization and Self-
Government Improvement Act of 1997, Public Law 105-33, the Commission
has required that parole revocation and reparole decisions for District
of Columbia offenders be made by the concurrence of two Commissioners.
The Commission adopted this requirement to replicate the voting
procedures of the former DC Board, which made its decisions on the
basis of a majority of the quorum of Board members (i.e., two out of
three).\1\ The Board did not provide for an appeal of any of its
decisions, and, when the Commission took on DC revocation functions,
neither did the Commission. (The Commission is required by statute to
afford an appeal procedure to U.S. Code offenders.) In response to
recommendations that the Commission allow DC offenders to submit
appeals, the Commission has explained that staff resources were not
sufficient to justify increasing the agency's workload by allowing
appeals for DC offenders, and that the two-vote requirement was an
acceptable substitute for an appeal procedure. See 65 FR 45885, 45886
(July 26, 2000).
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\1\ The Board's use of a majority-vote procedure was required by
former DC Code Sec. 24-201.2 (renumbered Sec. 24-401.02), but this
law and others regarding the creation, powers, and rulemaking
authority of the Board were abolished by section 11231(b) of the
Revitalization Act.
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Last year the Commission began modifying its procedures for post-
hearing voting and appeals in DC cases. The Commission promulgated a
rule permitting appeals of revocation decisions for DC supervised
releasees, and made a corresponding amendment that allowed the initial
revocation decision for these releasees to be made by one Commissioner.
See 68 FR 41696-41714 (July 15, 2003). Now the Commission is adopting
similar changes for DC offenders who have had parole revocation
hearings. DC parolees will now have a formal avenue for seeking
administrative correction of alleged errors in revocation proceedings.
By extending an appeal procedure to DC parole violators, the Commission
will provide for cumulative review of the case by two Commissioners for
those offenders who file an appeal. Under the Commission's long-
standing practice, an appeal is, whenever possible, reviewed by a
Commissioner who did not participate in the decision under review. See
28 CFR 2.26(b)(1). For appeals from revoked DC parolees, the Commission
will employ the same policies and practices that the Commission
identified in the publication of the rule granting an appeal procedure
for revoked DC supervised releasees. See 68 FR 41698.
In adding an appeal procedure for revoked DC parolees, the
Commission must also ensure that the initial dispositions in these
cases continue to be made in a timely manner. The
[[Page 68792]]
Commission is particularly vigilant in ensuring continued compliance
with the 86-day time period for making revocation decisions for DC
parolees arrested and held within the DC metropolitan area. The
Commission promulgated the rule on this time limit under a consent
decree that resolved class action litigation brought against the
Commission regarding significant delays in the handling of DC
revocation cases in the early months of the Commission's assumption of
revocation functions. Over FY 2004, the number for all revocation
dispositions for DC offenders increased 32% from the previous fiscal
year. The Commission must be careful in apportioning its workload among
the Commissioners so as to avoid violations of decision-making time
limits. Therefore, in conjunction with the grant of an administrative
appeal, the Commission is adopting a one-vote requirement for cases in
which the Commissioner agrees with the examiner panel's recommended
decisions on whether to revoke parole and to grant reparole to a DC
offender. Consistent with the Commission's traditional practice in
federal cases, two Commissioners must still concur in order to make a
decision in those cases in which the Commissioner who first reviews the
case disagrees with the panel recommendation reached by the hearing
examiner and the executive hearing examiner.\2\
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\2\ In employing a two-vote requirement in such cases, the
Commission seeks to allay the concern that one Commissioner may
reject the panel recommendation and make a different decision
without adhering to the collective policy of the Commission.
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With these changes, the Commission's post-hearing voting procedures
and appeal procedures for DC parole revocation and supervised release
revocation are now identical. This result is consistent with the
Commission's goal of achieving greater uniformity in its procedures for
all cases under the Commission's jurisdiction. But the Commission is
limiting the amendments described in this publication to the procedures
that follow revocation hearings for DC parolees (including mandatory
releasees), whether the hearing is a local, institutional, or
dispositional revocation hearing. At this time, the Commission is not
making any changes for DC offenders who have received parole release
hearings, including hearings on possible reparole that are subsequent
to an earlier revocation and reparole decision (e.g., a rescission or
special reconsideration hearing). The Commission is continuing to
employ an incremental approach in making appeals available to DC
offenders and in modifying the agency's voting procedures. The
Commission wants to see the results of the changes made by these
amendments before making any further modifications. Budget constraints
and the availability of sufficient staff and Commissioners to handle
the appeals are factors that affect the Commission's ability to expand
or maintain an appeal procedure. See 68 FR 41698-99.
Implementation
Because these rule changes are only rules of procedure, the
Commission is promulgating the changes as final rules without the need
for notice and public comment. In July 2003, similar rules for DC
supervised release cases were published, along with other rules, for an
extended period of notice and comment and no comment was received. The
rule amendments are made effective thirty days after the date of
publication. The new rules shall be employed for any DC parolee: (1)
Who has a revocation hearing on or after the effective date; or (2) who
had a revocation hearing before the effective date, but the case has
not been voted on by a Commissioner as of the effective date. If a DC
parole revocation case has been voted on by a Commissioner before the
effective date, and is before another Commissioner for a vote, the case
shall be processed under the two-vote requirement under the former rule
and no appeal may be submitted. An appeal may be submitted in any case
in which the Commissioner who first voted on the case signed the order
on or after the effective date.
The single vote procedure shall be used for decisions made under
the expedited revocation procedure. A parolee who accepts an expedited
offer waives the opportunity to appeal the decisions identified in the
offer.
Executive Order 12866
The U.S. Parole Commission has determined that this final rule does
not constitute a significant rule within the meaning of Executive Order
12866.
Executive Order 13132
This rule will not have substantial direct effects on the States,
on the relationship between the national government and the States, or
on the distribution of power and responsibilities among the various
levels of government. Under Executive Order 13132, this rule does not
have sufficient federalism implications requiring a Federalism
Assessment.
Regulatory Flexibility Act
The final rule will not have a significant economic impact upon a
substantial number of small entities within the meaning of the
Regulatory Flexibility Act, 5 U.S.C. 605(b), and is deemed by the
Commission to be a rule of agency practice that does not substantially
affect the rights or obligations of non-agency parties pursuant to
Section 804(3)(c) of the Congressional Review Act.
Unfunded Mandates Reform Act of 1995
This rule will not cause State, local, or tribal governments, or
the private sector, to spend $100,000,000 or more in any one year, and
it will not significantly or uniquely affect small governments. No
action under the Unfunded Mandates Reform Act of 1995 is necessary.
Small Business Regulatory Enforcement Fairness Act of 1996
This rule is not a major rule as defined by Sec. 804 of the Small
Business Regulatory Enforcement Fairness Act of 1996. This rule will
not result in an annual effect on the economy of $100,000,000 or more;
a major increase in costs or prices; or significant adverse effects on
the ability of United States-based companies to compete with foreign-
based companies.
List of Subjects in 28 CFR Part 2
Administrative practice and procedure, Prisoners, Probation and
parole.
The Final Rule
0
Accordingly, the U.S. Parole Commission is adopting the following
amendment to 28 CFR Part 2.
PART 2--[AMENDED]
0
1. The authority citation for 28 CFR part 2 continues to read as
follows:
Authority: 18 U.S.C. 4203(a)(1) and 4204(a)(6).
0
2. Amend Sec. 2.74 by revising paragraph (c) to read as follows:
Sec. 2.74 Decision of the Commission.
* * * * *
(c) The Commission shall resolve relevant issues of fact in
accordance with Sec. 2.19(c). Decisions granting or denying parole
shall be based on the concurrence of two Commissioners, except that
three Commissioner votes shall be required if the decision differs from
the decision recommended by the examiner panel by more than six months.
A decision releasing a parolee
[[Page 68793]]
from active supervision shall also be based on the concurrence of two
Commissioners. All other decisions, including decisions on revocation
and reparole made pursuant to Sec. 2.105(c), shall be based on the
vote of one Commissioner, except as otherwise provided in this subpart.
0
3. Amend Sec. 2.105 by revising the first sentence of paragraph (c)
and adding paragraph (g). The revised and added text reads as follows:
Sec. 2.105 Revocation decisions.
* * * * *
(c) Decisions under this section shall be made by one Commissioner,
except that a decision to override an examiner panel recommendation
shall require the concurrence of two Commissioners. * * *
* * * * *
(g) A parolee may appeal a decision made under this section to
revoke parole, to grant or deny reparole, or to modify the conditions
of release. The provisions of Sec. 2.26 on the time limits for filing
and deciding the appeal, the grounds for appeal, the format of the
appeal, the limits regarding the submission of exhibits, and voting
requirements apply to an appeal submitted under this paragraph.
Dated: November 18, 2004.
Edward F. Reilly, Jr.,
Chairman, U.S. Parole Commission.
[FR Doc. 04-26188 Filed 11-24-04; 8:45 am]
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