[Federal Register Volume 76, Number 134 (Wednesday, July 13, 2011)]
[Notices]
[Pages 41332-41335]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2011-17640]
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UNITED STATES SENTENCING COMMISSION
Sentencing Guidelines for the United States Courts
AGENCY: United States Sentencing Commission.
ACTION: Notice of final action regarding amendment to Policy Statement
1B1.10, effective November 1, 2011.
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SUMMARY: The Sentencing Commission hereby gives notice of an amendment
to a policy statement and commentary made pursuant to its authority
under 28 U.S.C. 994(a) and (u). The Commission promulgated an amendment
to Policy Statement 1B1.10 (Reduction in Term of Imprisonment as a
Result of Amended Guideline Range) clarifying when, and to what extent,
a sentencing reduction is considered consistent with the policy
statement and therefore authorized under 18 U.S.C. 3582(c)(2). The
amendment amends 1B1.10 (Reduction in Term of Imprisonment as a Result
of Amended Guideline Range) (Policy Statement) in four ways. First, it
expands the listing in 1B1.10(c) to include Amendment 750 (Parts A and
C only) as an amendment that may be applied retroactively. Second, it
amends 1B1.10 to change the limitations that apply in cases in which
the term of imprisonment was less than the minimum of the applicable
guideline range at the time of sentencing. Third, it amends the
commentary to 1B1.10 to address an application issue about what
constitutes the ``applicable guideline range'' for purposes of 1B1.10.
Fourth, it adds an application note to 1B1.10 to specify that the court
shall use the version of 1B1.10 that is in effect on the date on which
the court reduces the defendant's term of imprisonment as provided by
18 U.S.C. 3582(c)(2).
DATES: The effective date of this policy statement and commentary
amendment is November 1, 2011.
FOR FURTHER INFORMATION CONTACT: Jeanne Doherty, Office of Legislative
and Public Affairs, 202-502-4502.
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 sentencing courts pursuant to 28 U.S.C. 994(a).
The Commission also periodically reviews and revises previously
promulgated guidelines pursuant to 28 U.S.C. 994(o), and specifies in
what circumstances and by what amount sentences of imprisonment may be
reduced if the Commission reduces the term of imprisonment recommended
in the guidelines applicable to a particular offense or category of
offenses pursuant to 28 U.S.C. 994(u).
Additional information may be accessed through the Commission's Web
site at http://www.ussc.gov.
Authority: 28 U.S.C. 994(a), (u).
Patti B. Saris,
Chair.
1. Amendment: Section 1B1.10(b) is amended in subdivision (2) by
striking ``Limitations'' and inserting ``Limitation''; in subdivision
(2)(A) by striking ``In General'' and inserting ``Limitation''; in
subdivision (2)(B) by inserting ``for Substantial Assistance'' after
``Exception''; by striking ``original''; by inserting ``pursuant to a
government motion to reflect the defendant's substantial assistance to
authorities'' after ``of sentencing''; and by striking the last
sentence.
Section 1B1.10(c) is amended by striking ``and''; and by inserting
``, and 750 (parts A and C only)'' before the period at the end.
The Commentary to 1B1.10 captioned ``Application Notes'' is amended
in Note 1(A) in the first sentence by inserting ``(i.e., the guideline
range that corresponds to the offense level and criminal history
category determined pursuant to 1B1.1(a), which is determined before
consideration of any departure provision in the Guidelines Manual or
any variance)'' before the period; and in Note 1(B)(iii) by striking
``original''.
The Commentary to 1B1.10 captioned ``Application Notes'' is amended
in Note 3 in the first paragraph by striking ``original'' in both
places; by striking ``shall not'' and inserting ``may'' in both places;
by inserting ``as provided in subsection (b)(2)(A),'' after
``Specifically,''; by inserting ``no'' before ``less than the
minimum''; by striking ``41 to 51'' and inserting ``70 to 87''; by
striking ``41'' and inserting ``70''; by striking ``30 to 37'' and
inserting ``51 to 63''; by striking ``to a term less than 30 months''
and inserting ``, but shall not reduce it to a term less than 51
months''; and by striking the second paragraph and inserting the
following new paragraphs:
``If the term of imprisonment imposed was outside the guideline
range applicable to the defendant at the time of sentencing, the
limitation in subsection (b)(2)(A) also applies. Thus, if the term of
imprisonment imposed in the example provided above was not a sentence
of 70 months (within the guidelines range) but instead was a sentence
of 56 months (constituting a downward departure or variance), the court
likewise may reduce the defendant's term of imprisonment, but shall not
reduce it to a term less than 51 months.
Subsection (b)(2)(B) provides an exception to this limitation,
which applies if the term of imprisonment imposed was less than the
term of imprisonment provided by the guideline range applicable to the
defendant at the time of sentencing pursuant to a government motion to
reflect the defendant's substantial assistance to authorities. In such
a case, the court may reduce the defendant's term, but the reduction is
not limited by subsection (b)(2)(A) to the minimum of the amended
guideline range. Instead, as provided in subsection (b)(2)(B), the
court may, if appropriate, provide a reduction comparably less than the
amended guideline range. Thus, if the term of imprisonment imposed in
the example provided above was 56 months pursuant to a government
motion to reflect the defendant's substantial assistance to authorities
(representing a downward departure of 20 percent below the minimum term
of imprisonment provided by the guideline range applicable to the
defendant at the time of sentencing), a reduction to a term of
imprisonment of 41 months (representing a reduction of
[[Page 41333]]
approximately 20 percent below the minimum term of imprisonment
provided by the amended guideline range) would amount to a comparable
reduction and may be appropriate.
The provisions authorizing such a government motion are 5K1.1
(Substantial Assistance to Authorities) (authorizing, upon government
motion, a downward departure based on the defendant's substantial
assistance); 18 U.S.C. 3553(e) (authorizing the court, upon government
motion, to impose a sentence below a statutory minimum to reflect the
defendant's substantial assistance); and Fed. R. Crim. P. 35(b)
(authorizing the court, upon government motion, to reduce a sentence to
reflect the defendant's substantial assistance).'' and in the fifth
paragraph, as redesignated by this amendment, by inserting ``See
subsection (b)(2)(C).'' after ``time served.''.
The Commentary to 1B1.10 captioned ``Application Notes'' is amended
by redesignating Note 4 as Note 5 and inserting after Note 3 the
following:
``4. Application to Amendment 750 (Parts A and C Only).--As
specified in subsection (c), the parts of Amendment 750 that are
covered by this policy statement are Parts A and C only. Part A amended
the Drug Quantity Table in 2D1.1 for crack cocaine and made related
revisions to Application Note 10 to 2D1.1. Part C deleted the cross
reference in 2D2.1(b) under which an offender who possessed more than 5
grams of crack cocaine was sentenced under 2D1.1.''.
The Commentary to 1B1.10 captioned ``Application Notes'' is amended
by adding at the end the following:
``6. Use of Policy Statement in Effect on Date of Reduction.--
Consistent with subsection (a) of 1B1.11 (Use of Guidelines Manual in
Effect on Date of Sentencing), the court shall use the version of this
policy statement that is in effect on the date on which the court
reduces the defendant's term of imprisonment as provided by 18 U.S.C.
3582(c)(2).''.
The Commentary to 1B1.10 captioned ``Background'' is amended in the
second paragraph by adding at the end as the last sentence the
following:
``The Supreme Court has concluded that proceedings under section
3582(c)(2) are not governed by United States v. Booker, 543 U.S. 220
(2005), and this policy statement remains binding on courts in such
proceedings. See Dillon v. United States, 130 S. Ct. 2683 (2010).''.
Reason for Amendment: This amendment amends 1B1.10 (Reduction in
Term of Imprisonment as a Result of Amended Guideline Range) (Policy
Statement) in four ways. First, it expands the listing in 1B1.10(c) to
implement the directive in 28 U.S.C. 994(u) with respect to guideline
amendments that may be considered for retroactive application. Second,
it amends 1B1.10 to change the limitations that apply in cases in which
the term of imprisonment was less than the minimum of the applicable
guideline range at the time of sentencing. Third, it amends the
commentary to 1B1.10 to address an application issue about what
constitutes the ``applicable guideline range'' for purposes of 1B1.10.
Fourth, it adds an application note to 1B1.10 to specify that the court
shall use the version of 1B1.10 that is in effect on the date on which
the court reduces the defendant's term of imprisonment as provided by
18 U.S.C. 3582(c)(2).
First, the Commission has determined, under the applicable
standards set forth in the background commentary to 1B1.10, that
Amendment 750 (Parts A and C only) should be included in 1B1.10(c) as
an amendment that may be considered for retroactive application. Part A
amended the Drug Quantity Table in 2D1.1 (Unlawful Manufacturing,
Importing, Exporting, or Trafficking (Including Possession with Intent
to Commit These Offenses); Attempt or Conspiracy) for crack cocaine and
made related revisions to Application Note 10 to 2D1.1. Part C deleted
the cross reference in 2D2.1(b) under which an offender who possessed
more than 5 grams of crack cocaine was sentenced under 2D1.1.
Under the applicable standards set forth in the background
commentary to 1B1.10, the Commission considers, among other factors,
(1) the purpose of the amendment, (2) the magnitude of the change in
the guideline range made by the amendment, and (3) the difficulty of
applying the amendment retroactively. See 1B1.10, comment. (backg'd.).
Applying those standards to Parts A and C of Amendment 750, the
Commission determined that, among other factors:
(1) The purpose of Parts A and C of Amendment 750 was to account
for the changes in the statutory penalties made by the Fair Sentencing
Act of 2010, Public Law 111-220, 124 Stat. 2372, for offenses involving
cocaine base (``crack cocaine''). See USSG App. C, Amend. 750 (Reason
for Amendment). The Fair Sentencing Act of 2010 did not contain a
provision making the statutory changes retroactive. The Act directed
the Commission to promulgate guideline amendments implementing the Act.
The guideline amendments implementing the Act have the effect of
reducing the term of imprisonment recommended in the guidelines for
certain defendants, and the Commission has a statutory duty to consider
whether the resulting guideline amendments should be made available for
retroactive application. See 28 U.S.C. 994(u) (``If the Commission
reduces the term of imprisonment recommended in the guidelines * * * it
shall specify in what circumstances and by what amount sentences of
prisoners * * * may be reduced.''). In carrying out its statutory duty
to consider whether to give Amendment 750 retroactive effect, the
Commission also considered the purpose of the underlying statutory
changes made by the Act. Those statutory changes reflect congressional
action consistent with the Commission's long-held position that the
then-existing statutory penalty structure for crack cocaine
``significantly undermines the various congressional objectives set
forth in the Sentencing Reform Act and elsewhere'' (see USSG App. C,
Amend. 706 (Reason for Amendment)). The Fair Sentencing Act of 2010
specified in its statutory text that its purpose was to ``restore
fairness to Federal cocaine sentencing'' and provide ``cocaine
sentencing disparity reduction''. See 124 Stat. at 2372.
It is important to note that the inclusion of Amendment 750 (Parts
A and C) in 1B1.10(c) only allows the guideline changes to be
considered for retroactive application; it does not make any of the
statutory changes in the Fair Sentencing Act of 2010 retroactive.
(2) The number of cases potentially involved is substantial, and
the magnitude of the change in the guideline range is significant. As
indicated in the Commission's analysis of cases potentially eligible
for retroactive application of Parts A and C of Amendment 750,
approximately 12,000 offenders would be eligible to seek a reduced
sentence and the average sentence reduction would be approximately 23
percent.
(3) The administrative burdens of applying Parts A and C of
Amendment 750 retroactively are manageable. This determination was
informed by testimony at the Commission's June 1, 2011, public hearing
on retroactivity and by other public comment received by the Commission
on retroactivity. The Commission also considered the administrative
burdens that were involved when its 2007 crack cocaine amendments were
applied retroactively. See USSG App. C, Amendments 706 and 711
(amending the guidelines applicable to crack cocaine, effective
November 1, 2007) and Amendment 713 (expanding the listing in 1B1.10(c)
to include Amendments 706 and 711 as
[[Page 41334]]
amendments that may be considered for retroactive application,
effective March 3, 2008). The Commission received comment and testimony
indicating that those burdens were manageable and that motions
routinely were decided based on the filings, without the need for a
hearing or the presence of the defendant, and did not constitute full
resentencings. The Commission determined that applying Parts A and C of
Amendment 750 would likewise be manageable, given that, among other
things, significantly fewer cases would be involved. As indicated in
the Commission's Preliminary Crack Cocaine Retroactivity Report (April
2011 Data) regarding retroactive application of the 2007 crack cocaine
amendments, approximately 25,500 offenders have requested a sentence
reduction pursuant to retroactive application of the 2007 crack cocaine
amendments and approximately 16,500 of those requests have been
granted.
In addition, public safety will be considered in every case because
1B1.10 requires the court, in determining whether and to what extent a
reduction in the defendant's term of imprisonment is warranted, to
consider the nature and seriousness of the danger to any person or the
community that may be posed by such a reduction. See 1B1.10, comment.
(n.1(B)(ii)).
Second, in light of public comment and testimony and recent case
law, the amendment amends 1B1.10 to change the limitations that apply
in cases in which the term of imprisonment was less than the minimum of
the applicable guideline range at the time of sentencing. Under the
amendment, the general limitation in subsection (b)(2)(A) continues to
be that the court shall not reduce the defendant's term of imprisonment
to a term that is less than the minimum of the amended guideline range.
The amendment restricts the exception in subsection (b)(2)(B) to cases
involving a government motion to reflect the defendant's substantial
assistance to authorities (i.e., under 5K1.1 (Substantial Assistance to
Authorities), 18 U.S.C. 3553(e), or Fed. R. Crim. P. 35(b)). For those
cases, a reduction comparably less than the amended guideline range may
be appropriate.
The version of 1B1.10 currently in effect draws a different
distinction for cases in which the term of imprisonment was less than
the minimum of the applicable guideline range, one rule for downward
departures (stating that ``a reduction comparably less than the amended
guideline range * * * may be appropriate'') and another rule for
variances (stating that ``a further reduction generally would not be
appropriate''). See 1B1.10(b)(2)(B). The Commission has received public
comment and testimony indicating that this distinction has been
difficult to apply and has prompted litigation. The Commission has
determined that, in the specific context of 1B1.10, a single limitation
applicable to both departures and variances furthers the need to avoid
unwarranted sentencing disparities and avoids litigation in individual
cases. The limitation that prohibits a reduction below the amended
guideline range in such cases promotes conformity with the amended
guideline range and avoids undue complexity and litigation.
Nonetheless, the Commission has determined that, in a case in which
the term of imprisonment was below the guideline range pursuant to a
government motion to reflect the defendant's substantial assistance to
authorities (e.g., under 5K1.1), a reduction comparably less than the
amended guideline range may be appropriate. Section 5K1.1 implements
the directive to the Commission in its organic statute to ``assure that
the guidelines reflect the general appropriateness of imposing a lower
sentence than would otherwise be imposed * * * to take into account a
defendant's substantial assistance in the investigation or prosecution
of another person who has committed an offense.'' See 28 U.S.C. 994(n).
For other provisions authorizing such a government motion, see 18
U.S.C. 3553(e) (authorizing the court, upon government motion, to
impose a sentence below a statutory minimum to reflect a defendant's
substantial assistance); Fed. R. Crim. P. 35(b) (authorizing the court,
upon government motion, to reduce a sentence to reflect a defendant's
substantial assistance). The guidelines and the relevant statutes have
long recognized that defendants who provide substantial assistance are
differently situated than other defendants and should be considered for
a sentence below a guideline or statutory minimum even when defendants
who are otherwise similar (but did not provide substantial assistance)
are subject to a guideline or statutory minimum. Applying this
principle when the guideline range has been reduced and made available
for retroactive application under section 3582(c)(2) appropriately
maintains this distinction and furthers the purposes of sentencing.
Third, the amendment amends the commentary to 1B1.10 to address an
application issue. Circuits have conflicting interpretations about
when, if at all, the court applies a departure provision before
determining the ``applicable guideline range'' for purposes of 1B1.10.
The First, Second, and Fourth Circuits have held that, for 1B1.10
purposes, at least some departures (e.g., departures under 4A1.3
(Departures Based on Inadequacy of Criminal History Category) (Policy
Statement)) are considered before determining the applicable guideline
range, while the Sixth, Eighth, and Tenth Circuits have held that ``the
only applicable guideline range is the one established before any
departures''. See United States v. Guyton, 636 F.3d 316, 320 (7th Cir.
2011) (collecting and discussing cases; holding that departures under
5K1.1 are considered after determining the applicable guideline range
but declining to address whether departures under 4A1.3 are considered
before or after). Effective November 1, 2010, the Commission amended
1B1.1 (Application Instructions) to provide a three-step approach in
determining the sentence to be imposed. See USSG App. C, Amend. 741
(Reason for Amendment). Under 1B1.1 as so amended, the court first
determines the guideline range and then considers departures. Id. (``As
amended, subsection (a) addresses how to apply the provisions in the
Guidelines Manual to properly determine the kinds of sentence and the
guideline range. Subsection (b) addresses the need to consider the
policy statements and commentary to determine whether a departure is
warranted.''). Consistent with the three-step approach adopted by
Amendment 741 and reflected in 1B1.1, the amendment adopts the approach
of the Sixth, Eighth, and Tenth Circuits and amends Application Note 1
to clarify that the applicable guideline range referred to in 1B1.10 is
the guideline range determined pursuant to 1B1.1(a), which is
determined before consideration of any departure provision in the
Guidelines Manual or any variance.
Fourth, the amendment adds an application note to 1B1.10 to specify
that, consistent with subsection (a) of 1B1.11 (Use of Guidelines
Manual in Effect on Date of Sentencing), the court shall use the
version of 1B1.10 that is in effect on the date on which the court
reduces the defendant's term of imprisonment as provided by 18 U.S.C.
3582(c)(2). Finally, the amendment amends the commentary to 1B1.10 to
refer to Dillon v. United States, 130 S. Ct. 2683 (2010). In Dillon,
the Supreme Court concluded that proceedings under section 3582(c)(2)
are not governed by United States v. Booker, 543 U.S. 220
[[Page 41335]]
(2005), and that 1B1.10 remains binding on courts in such proceedings.
[FR Doc. 2011-17640 Filed 7-12-11; 8:45 am]
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