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Legal Commentary
: PrawfsDisappointing Foray into Agency Notice & Comment
By Dan Markel, Ethan Leib, Rick Garnett, Matt Bodie, Paul Horwitz , Steve Vladeck, and Orly Lobel
Even though I don?t teach administrative law, I?m constantly telling my students how important agency regulation is, and I always encourage them to take an administrative law course. So when the U.S. Sentencing Commission published a request for public comments on the topic of a paper I published two years ago, I decided to submit a comment encouraging the agency to change its regulation.
The regulation on which the Commission sought comment involves whether military service and other personal characteristics of a criminal defendant ought to be considered at sentencing. The existing regulation states that such characteristics are ?not ordinarily relevant? in setting a defendant?s sentence. My comments stated that such characteristics are relevant to sentencing and ought to be treated accordingly. The Commission recently posted an official press release (hat tip: Doug Berman) stating that it was amending its previous regulations because it:
?recognize[ed] that these factors may be relevant to the sentencing process courts undertake. Previously, these factors were deemed as ?not ordinarily relevant? in determining whether a sentence outside the guidelines was warranted. The amended policy statement provides that these factors may be relevant if they are relevant to an unusual degree and distinguish the case from the typical case. This amendment reflects the Commission?s extensive review of offender characteristics that included reviewing case law and relevant literature, receiving public comment and hearing testimony, and conducting extensive data analyses.?
The reason is that the Commission appears not to have actually amended the regulation. The U.S. Supreme Court in Koon v. United States, 518 U.S. 81 (1996), interpreted the Commission?s regulation labeling these personal characteristics as ?not ordinarily relevant? to mean that a sentencing court may rely on a such a factor ?only if the factor is present to an exceptional degree or in some other way makes the case different from the ordinary case where the factor is present.? This interpretation of the previous regulation seems no different from the Commission's new language that ?these factors may be relevant if they are relevant to an unusual degree and distinguish the case from the typical case.? There simply isn?t much daylight between something being present to an?exceptional? degree and something being present to an ?unusual? degree. So it seems to me that the Commission did nothing more than adopt the interpretive language from Koon.
I?m disappointed that the Commission not only failed to change the substantive standard for when such characteristics matter at sentencing, but also published a misleading statement indicating that it made such a change.
Full post as published by Prawfs on April 22, 2010 (boomark / email).
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