[Federal Register: January 27, 2006 (Volume 71, Number 18)] [Notices] [Page 4781-4804] From the Federal Register Online via GPO Access [wais.access.gpo.gov] [DOCID:fr27ja06-101] [[Page 4781]] ----------------------------------------------------------------------- Part III United States Sentencing Commission ----------------------------------------------------------------------- Sentencing Guidelines for United States Courts; Notice [[Page 4782]] ----------------------------------------------------------------------- UNITED STATES SENTENCING COMMISSION Sentencing Guidelines for United States Courts AGENCY: United States Sentencing Commission. ACTION: Notice of proposed amendments; request for public comment; notice of public hearings. ----------------------------------------------------------------------- SUMMARY: (A) Proposed Temporary, Emergency Amendment Pertaining to Steroid Offenses.--Pursuant to section 994(a), (o), and (p) of title 28, United States Code, section 3 of the Anabolic Steroid Control Act of 2004, Pub. L. 108-358, and the United States Parole Commission Extension and Sentencing Commission Authority Act of 2005, Pub. L. 109- 75, the Commission is considering promulgating a temporary, emergency amendment to the sentencing guidelines, policy statements, and commentary to increase the penalties for steroid offenses. This notice sets forth the proposed amendment and a synopsis of the issues addressed by the amendment. Issues for comment follow the proposed amendment. (B) Proposed Non-Emergency Amendments.--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 provides multiple issues for comment, some of which are contained within proposed amendments. The specific proposed amendments and issues for comment in this notice are as follows: (A) proposed amendment and issues for comment regarding immigration offenses, particularly offenses covered by Sec. Sec. 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful Alien), 2L1.2 (Unlawfully Entering or Remaining in the United States), 2L2.1 (Trafficking in a Document Relating to Naturalization, Citizenship, or Legal Resident Status, or a United States Passport; etc.) and 2L2.2 (Fraudulently Acquiring Documents Relating to Naturalization, Citizenship, or Legal Resident Status for Own Use); (B) proposed amendments to Sec. Sec. 2K2.1 (Unlawful Receipt, Possession, or Transportation of Firearms or Ammunition; Prohibited Transactions Involving Firearms or Ammunition), 1B1.1 (Application Instructions), and 5K2.11 (Lesser Harms), and issues for comment pertaining to firearms offenses; (C) proposed repromulgation of the proposed temporary, emergency amendment to Sec. Sec. 2D1.1 (Unlawful Manufacturing, Importing, Exporting, or Trafficking (Including Possession with Intent to Commit These Offenses); Attempt or Conspiracy), and 3B1.3 (Hate Crime Motivation and Vulnerable Victim) set forth in Part A of this notice; (D) proposed amendment to repromulgate as a permanent amendment the temporary, emergency amendment to Sec. 2B5.3 (Criminal Infringement of Copyright or Trademark), which became effective October 24, 2004 (see Supplement to Appendix C, (Amendment 675)); (E) proposed amendment to repromulgate as a permanent amendment the temporary, emergency amendment to Sec. 2J1.2 (Obstruction of Justice), which became effective October 24, 2005 (see Supplement to Appendix C, (Amendment 676)); (F) proposed amendments Sec. Sec. 2A1.4 (Involuntary Manslaughter), 2A5.2 (Interference with Flight Crew Member or Flight Attendant; Interference with Dispatch, Operation, or Maintenance of Mass Transportation Vehicle or Ferry), 2B1.1 (Theft, Fraud, and Property Destruction), 2K1.4 (Arson; Property Damage by Use of Explosives), and Chapter Two, Part X (Other Offenses) to implement the Safe, Accountable, Flexible, Efficient Transportation Act: A Legacy for Users, Pub. L. 109-59; (G) proposed amendments to Sec. Sec. 2A6.1 (Threatening Communications), 2K2.1 (Unlawful Receipt, Possession, or Transportation of Firearms or Ammunition; Prohibited Transactions Involving Firearms or Ammunition), 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful Alien), and 2M6.1 (Unlawful Production, Development, Acquisition, Stockpiling, Alteration, Use, Transfer, or Possession of Nuclear Material, Weapons, or Facilities, Biological Agents, Toxins, or Delivery Systems, Chemical Weapons, or Other Weapons of Mass Destruction; Attempt or Conspiracy) to implement the Intelligence Reform and Terrorism Prevention Act of 2004, Pub. L. 108-458; (H) proposed amendments to (i) Chapter Three (Adjustments) to implement the directive to the Commission in section 204(b) of the Intellectual Property Protection and Courts Administration Act of 2004, Pub. L. 108-482; and (ii) Sec. 2G2.5 (Recordkeeping Offenses Involving the Production of Sexually Explicit Materials) to implement section 5(d)(1) of the CAN-SPAM Act, Pub. L. 108-187; (I) proposed amendments to (i) Sec. Sec. 2B1.1 and 2B1.5 (Theft of, Damage to, or Destruction of, Cultural Heritage Resources; Unlawful Sale, Purchase, Exchange, Transportation, or Receipt of Cultural Heritage Resources) to implement the Veterans' Memorial Preservation and Recognition Act of 2003, Pub. L. 108-29; (ii) Sec. 2N2.1 (Violations of Statutes and Regulations Dealing With Any Food, Drug, Biological Product, Device, Cosmetic, or Agricultural Product) to implement the Plant Protection Act of 2002, Pub. L. 107-171; (iii) Sec. 2T3.1 (Evading Import Duties or Restrictions (Smuggling); Receiving or Trafficking in Smuggled Property ) to implement the Clean Diamond Trade Act of 2003, Pub. L. 108-19; (iv) Sec. Sec. 2A1.1 (First Degree Murder), 2A1.2 (Second Degree Murder), 2A1.3 (Voluntary Manslaughter), 2A1.4 (Involuntary Manslaughter), 2A2.1 (Assault with Intent to Commit Murder; Attempted Murder), 2A2.2 (Aggravated Assault), and 2X5.1 to implement the Unborn Victims of Violence Act of 2004, Pub. L. 108-212; and (v) Chapter Two, Part X (Other Offenses) to implement several other laws that created new Class A Misdemeanor offenses; (J) proposed amendments to Sec. 2D1.1 and Chapter Three (Adjustments) to address various guideline application issues; (K) proposed amendment to Sec. 3C1.1 (Obstruction of Justice) that addresses three issues of circuit conflict; (L) issue for comment pertaining to attorney-client waiver in Chapter Eight (Sentencing of Organizations); (M) proposed amendment to Chapter Six (Sentencing Procedures and Plea Agreements) pertaining to crime victims' rights; and (N) proposed amendment to Chapter One, Part B (General Application Principles) pertaining to reductions in the term of imprisonment based on a Bureau of Prisons motion. DATES: (A) Proposed Temporary, Emergency Amendment.--Written public comment on the proposed emergency amendment should be received by the Commission not later February 27, 2006, in anticipation of a vote to promulgate the emergency amendments at the Commission's March 2006 public meeting. Thereafter, written public comment on whether to repromulgate the emergency amendment as a permanent, non-emergency amendment should be received by the Commission not later than March 28, 2006. (B) Proposed Non-Emergency Amendments.--Written public comment regarding the proposed [[Page 4783]] 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 28, 2006. (C) Public Hearings.--The Commission has scheduled a public hearing on its proposed amendments for March 15, 2006, at the Thurgood Marshall Federal Judiciary Building, One Columbus Circle, NE., Washington, DC 20002-8002. A person who desires to testify at the public hearing should notify Michael Courlander, Public Affairs Officer, at (202) 502- 4597, not later than February 17, 2006. Written testimony for the public hearing must be received by the Commission not later than March 1, 2006. Timely submission of written testimony is a requirement for testifying at the public hearing. The Commission requests that, to the extent practicable, commentators submit an electronic version of the comment and of the testimony for the public hearing. The Commission also reserves the right to select persons to testify at any of the hearings and to structure the hearings as the Commission considers appropriate and the schedule permits. Further information regarding the public hearing, including the time of the hearing, will be provided by the Commission on its Web site at http://www.ussc.gov. In addition to the March public hearing, the Commission has scheduled two regional public hearings on the proposed immigration amendment. The first hearing will be held in San Antonio, TX, on February 21, 2006. The second hearing will be held in San Diego, CA, on March 6, 2006. Further information regarding these hearings, including the time and location, will be provided by the Commission on its Web site. ADDRESSES: Public comment should be sent to: United States Sentencing Commission, One Columbus Circle, NE., Suite 2-500, Washington, DC 20002-8002, Attention: Public Affairs. FOR FURTHER INFORMATION CONTACT: Michael Courlander, Public Affairs Officer, Telephone: (202) 502-4597. 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 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 submits guideline amendments to the Congress not later than the first day of May of each year pursuant to 28 U.S.C. 994(p). The Commission seeks comment on the proposed amendments, issues for comment, and any other aspect of the sentencing guidelines, policy statements, and commentary. In addition to the issues for comment presented in the proposed amendments, the Commission requests comment regarding simplification of the guidelines. Specifically, with respect to the guidelines that are the subject of the following proposed amendments, should the Commission make additional amendments to simplify those guidelines, and if so, how? For example, should Specific Offense Characteristics that are infrequently applied be deleted and instead included as bases for upward departures? Should Specific Offense Characteristics that provide graduated increases for degrees of conduct be collapsed to provide a single offense level increase? For example, should a firearm enhancement that provides alternative offense level increases based on how a firearm was involved in the offense (e.g., discharged, brandished, possessed, or otherwise used) provide a single offense level increase for the involvement of a firearm? The Commission also requests public comment regarding whether the Commission should specify for retroactive application to previously sentenced defendants any of the proposed amendments published in this notice. The Commission requests comment regarding which, if any, of the proposed amendments that may result in a lower guideline range should be made retroactive to previously sentenced defendants pursuant to Sec. 1B1.10 (Reduction in Term of Imprisonment as a Result of Amended Guideline Range). 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 on 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. Additional information pertaining to the proposed amendments described in this notice, including the Interim Staff Report on Immigration Reform and the Federal Sentencing Guidelines, may be accessed through the Commission's Web site at http://www.ussc.gov. Authority: 28 U.S.C. 994(a), (o), (p), (x); USSC Rules of Practice and Procedure, Rule 4.4. Ricardo H. Hinojosa, Chair. A. Proposed Emergency Amendment 1. Steroids Synopsis of Proposed Amendment: This proposed amendment implements the directive in the United States Parole Commission Extension and Sentencing Commission Authority Act of 2005, Pub. L. 109-76, which requires the Commission, under emergency amendment authority, to implement section 3 of the Anabolic Steroid Control Act of 2004, Pub. L. 108-358 (the ``ASC Act''). The ASC Act directs the Commission to ``review the Federal sentencing guidelines with respect to offenses involving anabolic steroids'' and ``consider amending the * * * guidelines to provide for increased penalties with respect to offenses involving anabolic steroids in a manner that reflects the seriousness of such offenses and the need to deter anabolic steroid trafficking and use * * *.'' The Commission must promulgate an amendment not later than 180 days after the date of enactment of the United States Parole Commission Extension and Sentencing Commission Authority Act of 2005, which creates a promulgation deadline of March 27, 2006. The proposed amendment implements the directives by increasing the penalties for offenses involving anabolic steroids. It does so by changing the manner in which anabolic steroids are treated under Sec. 2D1.1 (Unlawful Manufacturing, Importing, Exporting, or Trafficking (Including Possession with Intent to Commit These Offenses); Attempt or Conspiracy). Currently, one unit of an anabolic steroid ``means a 10 cc vial of an injectable steroid or fifty tablets.'' The proposed amendment presents two options for increasing penalties. Option One bases the offense level in an anabolic steroid offense on the ``actual'' quantity of steroid involved in the offense and provides that one unit of an anabolic steroid means [[Page 4784]] [25][50][100] mg of an anabolic steroid, regardless of the form involved in the offense (e.g., patch, cream, tablet, liquid). At 25 mg, sentencing penalties would be increased approximately 6-8 levels above current offense levels, and would closely approximate a 1:1 ratio with other Schedule III substances. At 50 mg, sentencing penalties would be increased approximately 4-6 levels above current offense levels, and at 100 mg, sentencing penalties would be increased approximately 2-4 levels above current offense levels. This option also includes a rebuttable presumption that the label, shipping manifest, or other similar documentation accurately reflects the purity of the steroid. Option Two eliminates the sentencing distinction between anabolic steroids and other Schedule III substances. Accordingly, if an anabolic steroid is in a pill, tablet, capsule, or liquid form, the court would sentence as it would in any other case involving a Schedule III substance. For anabolic steroids in other forms, the proposed amendment instructs the court that [1 unit means 25 mg and that] the court may determine the base offense level using a reasonable estimate of the quantity of anabolic steroid involved in the offense. The proposed amendment also provide new enhancements designed to capture aggravating harms involved in anabolic steroid cases. First, the proposed amendment amends Sec. 2D1.1 to provide an increase of two levels if the offense involved the distribution of a masking agent. A masking agent is a product added to, or taken with, an anabolic steroid to prevent the detection of the anabolic steroid in an individual's body. Second, the proposed amendment amends Sec. 2D1.1 to provide an increase of two levels if the defendant distributed an anabolic steroid to a professional, college, or high school athlete. Third, the proposed amendment presents two options for increasing penalties for coaches who distribute anabolic steroids to their athletes. Option One provides, as an alternative to the proposed enhancement for distribution to an athlete, a two-level increase in Sec. 2D1.1 if the defendant used the defendant's position as a coach of athletic activity to influence an athlete to use an anabolic steroid. Option Two amends Application Note 2 of Sec. 3B1.3 (Abuse of Position of Trust or Use of Special Skill) to include a coach who uses his or her position to influence an athlete to use an anabolic steroid in the list of special circumstances to which the two level adjustment in Sec. 3B1.3 shall apply. Two issues for comment follow the proposed amendment. The first pertains to whether the Commission, when it repromulgates the proposed amendment as a permanent amendment, should expand the scope of the enhancements to cover all controlled substances, not just anabolic steroids. The second issues pertains to whether the penalties for steroid offenses should be based on quantities typical of offenses involving mid- and high-level dealers. Proposed Amendment: Section 2D1.1 is amended by redesignating subsections (b)(6) and (b)(7) as subsections (b)(8) and (b)(9), respectively; and by inserting the following after subsection (b)(5): ``(6) If the offense involved the distribution of (A) an anabolic steroid; and (B) a masking agent, increase by 2 levels. (7) If the defendant distributed an anabolic steroid to a professional, college, or high school athlete[; Option 1(for coach): or (B) the defendant used the defendant's position as a coach of an athletic activity to influence a professional, college, or high school athlete to use an anabolic steroid], increase by 2 levels. ]''. [Option 1 (for steroids): Section 2D1.1(c) is amended in the ``*Notes to the Drug Quantity Table'' by striking subdivision (G) and inserting the following: ``(G) In the case of anabolic steroids, one `unit' means [25][50][100] mg of an anabolic steroid, regardless of the form (e.g., patch, topical cream, tablet, liquid). [There shall be a rebuttable presumption that the label, shipping manifest, or other similar documentation describing the type and purity of the anabolic steroid accurately reflects the purity of that steroid.]''.] [Option 2 (for steroids): Section 2D1.1(c) is amended in the ``*Notes to the Drug Quantity Table'' in subdivision (F) by striking ``(except anabolic steroids)''; and by adding at the end the following: ``For an anabolic steroid that is not in a pill, capsule, tablet, or liquid form (e.g. patch, topical cream, aerosol), [(A) one `unit' means [25] mg; and (B)] the court may determine the base offense level using a reasonable estimate of the quantity of anabolic steroid involved in the offense.''. Section 2D1.1(c) is amended in the ``*Notes to the Drug Quantity Table'' by striking subdivision (G).] The Commentary to Sec. 2D1.1 captioned ``Application Notes'' is amended by striking ``(b)(6)'' and inserting ``(b)(8)'' each place it appears; and by striking ``(b)(7)'' and inserting ``(b)(9)'' each place it appears. The Commentary to Sec. 2D1.1 captioned ``Application Notes'' is amended by adding at the end the following: ``24. Application of Subsection (b)(6).--For purposes of subsection (b)(6), `masking agent' means a product added to, or taken with, an anabolic steroid that prevents the detection of the anabolic steroid in an individual's body. 25. Application of Subsection (b)(7).--For purposes of subsection (b)(7): `Athlete' means an individual who participates in an athletic activity conducted by (A) an intercollegiate athletic association or interscholastic athletic association; (B) a professional athletic association; or (C) an amateur athletic organization. `Athletic activity' means an activity that (A) has officially designated coaches; (B) conducts regularly scheduled practices or workouts that are supervised by coaches; and (C) has established schedules for competitive events or exhibitions. `College or high school athlete' means an athlete who is a student at an institution of higher learning (as defined in section 101 of the Higher Education Act of 1965 (20 U.S.C. 1001) or at a secondary school (as defined in section 9101 of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 7801). `Professional athlete' means an individual who competes in a major professional league.''. The Commentary to Sec. 2D1.1 captioned ``Background'' is amended in the ninth paragraph by striking ``(b)(6)(A)'' and inserting ``(b)(8)(A)''; and in the last paragraph by striking ``(b)(6)(B) and (C)'' and inserting ``(b)(8)(B) and (C)''. [Option 2 (for coaches): The Commentary to Sec. 3B1.3 captioned ``Application Notes'' is amended in Note 2 in subdivision (A) by inserting ``Postal Service Employee.--'' before ``An employee''; in subdivision (B) by inserting ``Offenses Involving `Means of Identification'.--'' before ``A defendant''; and by adding at the end the following: ``(C) Coach of Athletic Activity.--A defendant who uses the defendant's position as a coach of an athletic activity to influence a professional, college, or high school athlete to use an anabolic steroid. For purposes of this guideline: (i) `Athlete' means an individual who participates in an athletic activity conducted by (I) an intercollegiate athletic association or interscholastic athletic association; (II) a professional athletic association; or (III) an amateur athletic organization. (ii) `Athletic activity' means an activity that (I) has officially designated coaches; (II) conducts regularly [[Page 4785]] scheduled practices or workouts that are supervised by coaches; and (III) has established schedules for competitive events or exhibitions. (iii) `College, or high school athlete' means an athlete who is a student at an institution of higher learning (as defined in section 101 of the Higher Education Act of 1965 (20 U.S.C. 1001) or at a secondary school (as defined in section 9101 of the Elementary and Secondary Education Act of 1965 (20 U.S.C. 7801). (iv) `Professional athlete' means an individual who competes in a major professional league.]''. Issues for Comment: (1) The Commission requests comment regarding whether, when the Commission re-promulgates the temporary, emergency amendment as a permanent amendment, it should expand the proposed enhancements in Sec. 2D1.1(b)(6) (pertaining to masking agents) and in Sec. 2D1.1(b)(7) (pertaining to distribution of a steroid to an athlete) to cover offenses involving any controlled substance. Specifically, the proposed amendment defines ``masking agent'' as ``a product added to, or taken with, an anabolic steroid to prevent the detection of the anabolic steroid in an individual's body.'' However, masking agents also can be taken to prevent the detection of other controlled substances. The Commission requests comment regarding whether it should expand the definition of masking agent, and thus application of the enhancement, in a manner that covers all controlled substances, not just anabolic steroids. Similarly, there are controlled substances other than anabolic steroids that enhance an individual's performance. The Commission requests comment regarding whether the proposed enhancement pertaining to distribution to an athlete should be expanded to cover offenses involving all types of controlled substances. (2) The Commission requests comment regarding whether penalties for steroid offenses should be based on quantities typical of offenses involving mid- and high-level dealers. For more serious drug types (e.g., heroin, cocaine, marihuana), the Drug Quantity Table in Sec. 2D1.1(c) provides an offense level of 26 for quantities typical of mid- level dealers and an offense level of 32 for quantities typical of high-level dealers. These levels also correspond to the statutory mandatory minimum penalties for mid- and high-level dealers. Although there are no statutory mandatory minimum penalties establishing thresholds for steroid offenses, the Commission has been informed that a steroids dealer who provides the equivalent of one complete cycle to 10 customers is considered to be a mid-level dealer, and a dealer who provides the equivalent of one complete cycle to 30 customers is considered to be a high-level dealer. Currently, offense levels in the Drug Quantity Table for anabolic steroids and other Schedule III substances begin at level 6 and are ``capped'' at level 20. Should the Commission provide a penalty structure within this range that targets offenses involving mid- and high-level steroid dealers, and if so, what offense levels should correspond to a mid-level dealer and to a high- level dealer? B. Proposed Non-Emergency Amendments 1. Immigration Synopsis of Proposed Amendment: This four part proposed amendment addresses issues involving immigration offenses. These issues were identified through review of HelpLine calls to the Commission, feedback from training seminars, receipt of public comment, and information staff gathered from an immigration roundtable discussion. Part One of the proposed amendment addresses issues relating to offenses sentenced under Sec. 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful Alien). Part Two is a proposal to amend Sec. 2L2.1 (Trafficking in a Document Relating to Naturalization, Citizenship, or Legal Resident Status, or a United States Passport; False Statement in Respect to the Citizenship or Immigration Status of Another; Fraudulent Marriage to Assist Alien to Evade Immigration Law) 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). Part Three addresses issues relating to offenses sentenced under Sec. 2L1.2 (Unlawfully Entering or Remaining in the United States). Part Four presents issues for comment regarding the proposed amendment. 1. Section 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful Alien) This part of the proposed amendment covers offenses sentenced under Sec. 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful Alien). A. National Security Concerns Currently, Sec. 2L1.1(a)(1) provides a base offense level of level 23 if the defendant was convicted under 8 U.S.C. 1327 of a violation involving an alien who previously was deported after a conviction for an aggravated felony. Title 8, United States Code, section 1327, provides a statutory maximum term of imprisonment of 10 years for cases involving aiding or assisting certain aliens who pose a heightened risk to the safety of the citizens of the United States. However, Sec. 2L1.1(a)(1) only applies to a limited subgroup of those convicted under Sec. 1327. This proposal provides three options to increase punishment for those defendants who assist ``inadmissible aliens'' in illegally entering the United States. All options retain the current base offense level of 23 for a defendant who has a conviction under 8 U.S.C. 1327 in a case in which the violation involved an alien ``who previously was deported after a conviction for an aggravated felony.'' Option One provides a base offense level of 25 for a defendant who is convicted of 8 U.S.C. 1327 involving an alien who is inadmissable because of ``security or related grounds'', as defined in 8 U.S.C. 1182(a)(3). Option Two provides a specific offense characteristic with an increase of [2-6] levels for defendants who smuggle, transport, or harbor an alien who was inadmissible under 8 U.S.C. 1182(a)(3). This option is relevant conduct based. B. Number of Aliens The proposed amendment provides two options to amend Sec. 2L1.1(b)(2) regarding the number of aliens involved in the offense. The first option maintains the current structure of the table, which provides a three-level increase for offenses involving six to 24 aliens, a six-level increase for offenses involving 25 to 99 aliens, and a nine-level increase for offenses involving 100 or more aliens. Option One amends the table to provide a nine-level increase for offenses involving 100 to 199 aliens, a [12]-level increase for offenses involving 200 to 299 aliens, and a [15]-level increase for offenses involving 300 or more aliens. Option Two, in part mirrors Option One by providing the same increases at the top end of the table for offenses involving 100 or more aliens. However, Option Two also provides smaller categories at the low end of the table. Offenses involving six to [15] aliens would receive an increase of three levels, [16 to 49] aliens would receive an increase of [six] levels, and [50 to 99] aliens would receive an increase of [nine] levels. C. Endangerment of Minors The proposed amendment presents two options and an issue for comment to address offenses in which an alien [[Page 4786]] minor was smuggled, harbored, or transported. Option One provides a [2][4][6] level increase if the defendant smuggled, transported, or harbored a minor unaccompanied by the minor's parent. Option two provides a graduated increase, based upon the age of the minor smuggled, harbored, or transported. A four-level increase is provided for a defendant who smuggles a minor under the age of 12 who is unaccompanied by his or her parent. A two-level increase is provided for a defendant who smuggles a minor unaccompanied by his or her parent who has attained the age of 12 years, but has not attained the age of 16 years. D. Offenses Involving Death The amendment proposes several changes to the guideline in cases in which death occurred. First, the proposed amendment removes the increase of eight levels ``if death resulted'' from the current specific offense characteristic addressing bodily injury and places this increase in a stand alone specific offense characteristic. This new specific offense characteristic would provide an increase of [10] levels. Providing a separate specific offense characteristic for death allows for cumulative enhancements in a case in which both bodily injury and death occur. Additionally, the cross reference at Sec. 2L1.1(c)(1) is expanded to cover deaths other than murder, if the resulting offense level is greater than the offense level determined under Sec. 2L1.1. E. Abducting Aliens, or Holding Aliens for Ransom A [four]-level increase and a minimum offense level of [23] is proposed for cases in which an alien was kidnapped, abducted, or unlawfully restrained, or if a ransom demand was made. This proposed amendment addresses the concern about cases in which the unlawful aliens are coerced, with or without the use of physical force, or even with direct threats, into remaining in ``safe houses'' for long periods of time through coercion, implied threat, or deception. This is done so that the smugglers can get more money from the families of the aliens or so they will provide inexpensive labor. Currently, this conduct is not covered by Sec. 3A1.3 (Restraint of Victim) because that guideline only covers ``physical restraint''. The extent of the increase (four levels) is consistent with a similar enhancement in subsection (b)(7)(B) of Sec. 2A4.1 (Kidnapping, Abduction, Unlawful Restraint) and the minimum offense level of 23 is consistent with Sec. 2A4.2 (Demanding or Receiving Ransom Money), which provides a base offense level of 23 for such offenses. 2. Sections 2L2.1 (Trafficking in a Document Relating to Naturalization, Citizenship, or Legal Resident Status, or a United States Passport; etc.) and 2L2.2 (Fraudulently Acquiring Documents Relating to Naturalization, Citizenship, or Legal Resident Status for Own Use; etc.) This part of the proposed amendment covers offenses sentenced under Sec. Sec. 2L2.1 (Trafficking in a Document Relating to Naturalization, Citizenship, or Legal Resident Status, or a United States Passport; etc.) and 2L2.2 (Fraudulently Acquiring Documents Relating to Naturalization, Citizenship, or Legal Resident Status for Own Use; etc.) A. Number of Documents The proposed amendment provides two options in Sec. 2L2.1 to amend the specific offense characteristic involving the number of documents and passports involved in the offense. The two options are identical to the two options presented under Sec. 2L1.1 (Smuggling, Transporting, or Harboring an Unlawful Alien) to amend the specific offense characteristic (b)(2) regarding the number of aliens involved in the offense. The first option maintains the current structure of the table, which provides a three-level increase for offenses involving six to 24 documents, a six-level increase for offenses involving 25 to 99 documents, and a nine-level increase for offenses involving 100 or more documents. Option one amends the table to provide a nine-level increase for offenses involving 100 to 199 documents, a [12]-level increase for offenses involving 200 to 299 documents, and a [15]-level increase for offenses involving 300 or more documents. Option two, in part mirrors option one by providing the same increases at the top end of the table for offenses involving 100 or more documents. However, option two also provides smaller categories at the low end of the table. Offenses involving six to [15] documents would receive an increase of [three] levels, [16 to 49] documents would warrant an increase of [six] levels, and [50 to 99] documents would receive an increase of [nine] levels. B. Fraudulently Obtaining or Using United States Passports or Foreign Passports The proposed amendment provides a new specific offense characteristic at Sec. 2L2.1(b)(5)(A) that provides a four-level increase in a case in which the defendant fraudulently used or obtained a United States passport. The same specific offense characteristic was added to Sec. 2L2.2, effective November 1, 2004. Addition of this specific offense characteristic promotes proportionality between the document fraud guidelines, Sec. Sec. 2L2.1 and 2L2.2. In addition, the proposed amendment also provides, at Sec. 2L2.1(b)(1)(B) and Sec. 2L2.2(b)(3)(B), a two-level increase if the defendant fraudulently obtained or used a foreign passport. 3. Sec. 2L1.2 (Unlawfully Entering or Remaining in the United States) This part of the proposed amendment addresses issues relating to offenses sentenced under Sec. 2L1.2 (Unlawfully Entering or Remaining in the United States). A. Alternative Approaches to Sentencing Under Sec. 2L1.2 The current structure of Sec. 2L1.2 requires the court, using the ``categorical approach'', to assess whether a prior conviction qualifies for a particular category under the guideline. This analysis is often complicated by lack of documentation, competing case law decisions, and the volume of cases. In addition, Sec. 2L1.2 contains different definitions of covered offenses from the statute. Courts, then, are faced with making these assessments multiple times in the same case. The proposed amendment provides five options to address the complexity of this guideline. The first, second, and third options amend the structure of Sec. 2L1.2 by using the definition of aggravated felony in combination with the length of the sentence imposed for that prior felony conviction. Option one provides a 16-level increase for an aggravated felony in which the sentence of imprisonment imposed exceeded 13 months; a 12- level increase for an aggravated felony in which the sentence of imprisonment imposed was less than 13 months; and an eight-level increase for all other aggravated felonies. Option two provides a 16- level increase for an aggravated felony in which the sentence of imprisonment imposed exceeded two years; a 12-level increase for an aggravated felony in which the sentence of imprisonment imposed was at least one year, but less than two years; and an 8 level increase for all other aggravated felonies. Option three, mirroring the criminal history guidelines, provides a 16-level increase for an aggravated felony in which the sentence imposed exceeded 13 months; a 12-level increase for an aggravated felony in which the sentence imposed [[Page 4787]] was at least 60 days but did not exceed 13 months; and an 8 level increase for all other aggravated felonies. The fourth option maintains the current structure of Sec. 2L1.2, except that the categories of offenses delineated under this guideline are defined by 8 U.S.C.1101(a)(43), the statute providing definitions for ``aggravated felonies''. Additionally, this option provides use of length of sentence of imprisonment imposed in conjunction with ``crime of violence'' to further distinguish between the numerous types of prior convictions that fall within this category. Finally, the fifth option provides an increased base offense level and a reduction if the prior conviction is not a felony. 4. Issues for Comment Part 4 of the proposed amendment sets forth multiple issues for comment regarding the immigration guidelines and the proposed amendment. Proposed Amendment: Part 1: Sec. 2L1.1 [Please Note: For ease of presentation, the proposed amendments set forth in Part 1, Subparts A through E, are drafted independently of each other. If the Commission were to vote to adopt an amendment from each Subpart, technical and conforming amendments would be made to ensure proper redesignations of subsections and application notes.] A. National Security Concerns [Option 1: Section 2L1.1 is amended by redesignating subsections (a)(1) and (a)(2) as subsections (a)(2) and (a)(3), respectively; and by inserting after ``Level:'' the following: ``(1) [25], if the defendant was convicted under 8 U.S.C. 1327 of a violation involving an alien who was inadmissible under 8 U.S.C. 1182(a)(3);''; and in subsection (a)(3), as redesignated by this amendment, by striking ``12'' and inserting ``[12][14]''. The Commentary to Sec. 2L1.1 captioned ``Application Notes'' is amended by redesignating Notes 2 through 6 as Notes 3 through 7, respectively; and by inserting after Note 1 the following: ``2. Application of Subsection (a)(1).--Subsection (a)(1) applies in cases in which the defendant is convicted under 18 U.S.C. 1327 of knowingly smuggling certain aliens inadmissible under 8 U.S.C. 1182(a)(3). Section 1327 requires that the defendant know that the alien is ineligible to be admitted into the United States, however, it does not require that the defendant have specific knowledge as to why the defendant is ineligible for admission.''.] [Option 2 (for national security): Section 2L1.1 is amended by redesignating subsections (b)(3) through (b)(6) as subsections (b)(4) through (b)(7), respectively; and by inserting after subsection (b)(2) the following: ``(3) If the defendant smuggled, transported, or harbored an alien who was inadmissible under 8 U.S.C. 1182(a)(3), increase by [2][4][6] levels.''.] B. Number of Aliens [Option 1: Section 2L1.1(b)(2) is amended by striking subdivision (C) and inserting the following: ``(C) 100-199 add 9 (D) 200-299 add [12] (E) 300 or more add [15].''.] [Option 2: Section 2L1.1(b)(2) is amended by striking subdivisions (A) through (C) and inserting the following: ``(A) 6-[15] add 3 (B) [16-49] add [6] (C) [50-99] add [9] (D) [100-199] add [12] (E) [200-299] add [15] (F) [300 or more] add [18].''.] The Commentary to Sec. 2L1.1 captioned ``Application Notes'' is amended in Note 4 by inserting ``Application of Subsection (b)(2).--'' before ``If''; and by striking ``100'' and inserting ``300''. C. Endangerment of Minors Section 2L1.1 is amended by redesignating subsections (b)(3) through (b)(6) as subsections (b)(4) through (b)(7), respectively; and by inserting the following after subsection (b)(2): [Option 1: ``(3) If the defendant smuggled, transported, or harbored a minor who was unaccompanied by the minor's parent, increase by [2][4][6] levels.''.] [Option 2: ``(3) If (A) the defendant smuggled, transported, or harbored a minor who was unaccompanied by the minor's parent; and (B) the minor (i) had not attained the age of 12 years, increase by [4] levels; or (ii) had attained the age of 12 years but had not attained the age of 16 years, increase by [2] levels.''.] D. Offenses Involving Death Subsection (b)(6) is amended by striking ``died or''; by striking ``Death or''; by redesignating subdivisions (1) through (3) as subdivisions (A) through (C), respectively; by inserting a period after ``6 levels''; and by striking subdivision (4). Section 2L1.1 is amended by inserting after subsection (b)(6) the following: ``(7) If the offense resulted in the death of any person, increase by [10] levels.''. Subsection 2L1.1 is amended by striking subsection (c) and inserting the following: ``(c) Cross Reference (1) If death resulted, apply the appropriate homicide guideline from Chapter Two, Part A, Subpart 1, if the resulting offense level is greater than that determined under this guideline.''. E. Abducting Aliens or Holding Aliens for Ransom Section 2L1.1(b) is amended by adding at the end the following: ``(7) If an alien was kidnapped, abducted, or unlawfully restrained, or if a ransom demand was made, increase by [4] levels. If the resulting offense level is less than level [23], increase to level [23].''. Part 2: Sec. Sec. 2L2.1 and 2L2.2 A. Number of Documents [Option 1: Subsection 2L2.1(b)(2) is amended by striking subdivision (C) and inserting the following: ``(C) 100-199 add 9 (D) 200-299 add [12] (E) 300 or more add [15].''.] [Option 2: Section 2L2.1(b)(2) is amended by striking subdivisions (A) through (C) and inserting the following: ``(A) 6-[15] add 3 (B) [16-49] add [6] (C) [50-99] add [9] (D) [100-199] add [12] (E) [200-299] add [15] (F) [300 or more] add [18].''.] The Commentary to Sec. 2L2.1 captioned ``Application Notes'' is amended in Note 5 by inserting ``Application of Subsection (b)(2).--'' before ``If''; and by striking ``100'' and inserting ``300''. B. Fraudulently Obtaining or Using United States Passports or Foreign Passports Section 2L2.1(b) is amended by adding at the end the following: ``(5) If the defendant fraudulently obtained or used (A) a United States passport, increase by 4 levels; or (B) a foreign passport, increase by 2 levels.''. Section 2L2.2(b)(3) is amended by inserting ``(A)'' after ``used'' and by inserting ``; or (B) a foreign passport, increase by 2 levels'' after ``4 levels''. Part 3: Sec. 2L1.2 [Option 1: Section 2L1.2(b)(1) is amended by striking subdivisions (A) and (B) and inserting the following: ``(A) a conviction for an aggravated felony for which a sentence of imprisonment exceeding 13 months was imposed, increase by 16 levels; ``(B) a conviction for an aggravated felony for which a sentence of imprisonment of 13 months or less was imposed, increase by 12 levels;''; and in subdivision (C) by inserting ``not covered by subdivision (b)(1)(A) or (b)(1)(B)'' after ``felony''.] [[Page 4788]] (Option 2: Section 2L1.2(b)(1) is amended by striking subdivisions (A) and (B) and inserting the following: ``(A) a conviction for an aggravated felony for which the sentence imposed exceeded 2 years, increase by 16 levels; (B) a conviction for an aggravated felony for which the sentence imposed was at least 12 months but did not exceed 2 years, increase by 12 levels;''; and in subdivision (C) by inserting ``not covered by subdivision (b)(1)(A) or (b)(1)(B)'' after ``felony''.] [Option 3: Section 2L1.2(b)(1) is amended by striking subdivisions (A) and (B) and inserting the following: ``(A) a conviction for an aggravated felony for which the sentence imposed exceeded 13 months, increase by 16 levels; (B) a conviction for an aggravated felony for which the sentence imposed was at least 60 days but did not exceed 13 months, increase by 12 levels;''; and in subdivision (C) by inserting ``not covered by subdivision (b)(1)(A) or (b)(1)(B)'' after ``felony''.] [Please Note: The following proposed Commentary amendments would be used with Options 1, 2, and 3)]: The Commentary to Sec. 2L1.2 captioned ``Application Notes'' is amended in Note 1 by striking subdivisions (B)(i) through (B)(viii) and inserting the following: ``(i) `Aggravated felony' has the meaning given that term in section 101(a)(43) of the Immigration and Nationality Act (8 U.S.C. 1101(a)(43)), without regard to the date of conviction for the aggravated felony. (ii) `Aggravated felony not covered by subdivision (b)(1)(A) or (b)(1)(B)' means an aggravated felony for which the sentence imposed was a sentence other than imprisonment (e.g., probation). (iii) `Felony' means any Federal, State, or local offense punishable by imprisonment for a term exceeding one year. (iv) `Sentence of imprisonment' has the meaning given that term in Application Note 2 and subsection (b) of Sec. 4A1.2 (Definitions and Instructions for Computing Criminal History), without regard to the date of the conviction. The length of the sentence imposed includes any term of imprisonment given upon revocation of probation, parole, or supervised release.''. The Commentary to Sec. 2L1.2 captioned ``Application Notes'' is amended by striking Notes 2 and 3; and by redesignating Notes 4 through 6 as Notes 2 through 4, respectively. [Option 4: Section 2L1.2(b) is amended in subdivision (A) by striking ``a felony'' and inserting ``an aggravated felony''; and by inserting ``for which the sentence imposed exceeded 13 months'' after ``violence''; in subdivision (B) by striking ``a felony'' and inserting ``an aggravated felony that is a (i)''; by striking the comma after ``less'' and inserting ``; (ii) crime of violence for which the sentence imposed was 13 months or less,''; and in subdivision (C) by inserting ``not covered by subdivision (b)(1)(A) or (b)(1)(B)'' after ``felony''. The Commentary to Sec. 2L1.2 captioned ``Application Notes'' is amended in Note 1 by striking subdivisions (B)(ii) through (B)(vi) and inserting the following: ``(ii) `Child pornography offense' is an offense described in 8 U.S.C. 1101(a)(43)(I). (iii) `Crime of violence' has the meaning given that term in 18 U.S.C. 16. (iv) `Drug trafficking offense' has the meaning given that term in 18 U.S.C. 924(c). (v) `Firearms offense' is an offense described in 8 U.S.C. 1101(a)(43)(C) and (E). (vi) `Human trafficking offense' is an offense described in 8 U.S.C. 1101(a)(43)(K).''; and by striking subdivision (B)(viii) and inserting the following: ``(viii) `National security or terrorism offense' is an offense described in 8 U.S.C. 1101(a)(43)(L).''.] [Option 5: Section 2L1.2 is amended in subsection (a) by striking ``8'' and inserting ``[16][20][24]''; and by striking subsection (b)(1) and inserting the following: ``(1) If the defendant does not have a prior conviction for a felony, decrease by [8][6][4] levels.''. The Commentary to Sec. 2L1.2 captioned ``Application Notes'' is amended by striking Notes 1, 3, 4, and 6; by redesignating Notes 2 and 5 as Notes 1 and 2, respectively. Part 4. Issues for Comment (1) The proposed amendment to Sec. 2L1.1 provides options for addressing defendants who smuggle, transport, or harbor any alien who is inadmissible under 8 U.S.C. 1182(a)(3). Certain sections of 8 U.S.C. 1182(a)(3), however, are very broad, such as subsection (a)(3)(A)(iii) (pertaining to inadmissibility due to an intent to commit ``any other unlawful activity''), or are unrelated to the national security risks associated with terrorism, such as subsections (a)(3)(D) (pertaining to membership in a totalitarian party) and (a)(3)(E) (pertaining to participants in Nazi persecutions). The Commission requests comment regarding whether it should more specifically identify, for purposes of either a heightened base offense level or a specific offense characteristic, the subsections of 8 U.S.C. 1182(a)(3) that pertain to terrorism or to other national security provisions. For example, should either a heightened base offense level or a specific offense characteristic be limited to 8 U.S.C. 1182(a)(3)(A)(i) (pertaining to espionage or sabotage), (a)(3)(A)(iii) (pertaining to overthrow of the United States Government), (a)(3)(B) (pertaining to terrorist activities), and (a)(3)(F) (pertaining to association with terrorist organizations)? Additionally, the Commission requests comment regarding whether Sec. 2L1.1 should provide a heightened base offense level if the defendant were convicted under 8 U.S.C. 1327 (Aiding or assisting certain aliens to enter) and a specific offense characteristic that would apply cumulatively if the defendant smuggled, transported, or harbored an alien the defendant knew to be inadmissible under 8 U.S.C. 1182(a)(3). (2) The proposed amendment provides new specific offense characteristics that are defendant-based (i.e., the defendant's liability is limited to the defendant's own conduct and conduct that the defendant aided or abetted, counseled, commanded, induced, procured, or willfully caused) rather than offense-based (i.e., expanded relevant conduct). See proposed amendment, Sec. 2L1.1(b)(3) (pertaining to smuggling inadmissible aliens) and (b)(4) (pertaining to smuggling a minor unaccompanied by the minor's parent). The Commission requests comment regarding whether these specific offense characteristics should be offense based rather than defendant based. Alternatively, should the proposed enhancement in Sec. 2L1.1(b)(10) (pertaining to kidnapping an alien) be defendant-based rather than offense-based, as it is currently proposed? (3) The proposed amendment to Sec. 2L1.1 includes an enhancement for a defendant who smuggled, transported, or harbored a minor who was unaccompanied by the minor's parent. The Commission requests comment regarding whether such conduct is better addressed in the context of Sec. 3A1.1 (Hate Crime Motivation or Vulnerable Victim). (4) The Commission requests comment regarding whether it should increase the base offense levels in Sec. Sec. 2L2.1 and 2L2.2. (5) Currently, Sec. 2L2.2 provides an increase of four levels if the defendant fraudulently obtained or used a United States passport. The proposed amendment would add this [[Page 4789]] enhancement to Sec. 2L2.1 and also provide an enhancement of two levels in both Sec. Sec. 2L2.1 and 2L2.2 if the defendant fraudulently obtained or used a foreign passport. As an alternative to the proposed amendment, the Commission requests comment regarding whether it should provide a [four-level] enhancement in both Sec. Sec. 2L2.1 and 2L2.2 regardless of whether the passport was issued by the United States or a foreign country. Additionally, the Commission requests comment regarding whether other types of documents should be included in the enhancement. If so, what types of documents should be included? For example, should the proposed 2-level enhancement also apply in the case of a defendant who fraudulently obtains or used a driver's license? Additionally, the Commission requests comment regarding whether it should provide an application note in Sec. Sec. 2L2.1 and 2L2.2 that instructs the court not to apply Sec. 2L2.1(b)(2), proposed Sec. 2L2.1(b)(5), or Sec. 2L2.2(b)(3) if the documents are so obviously counterfeit that they are unlikely to be accepted even if subjected to only minimal scrutiny. The guidelines currently provide such an application note in Sec. 2B5.1 (Offenses Involving Counterfeit Bearer Obligations of the United States). (6) The Commission requests comment regarding whether the prior convictions used to increase a defendant's offense level under Sec. 2L1.2 should be subject to the rules of criminal history found at Sec. 4A1.2. For example, if a prior conviction is too old to be counted for the purposes of criminal history, should that prior conviction also be too old to count for the purposes of Sec. 2L1.2? Alternatively, should such a conviction be the basis for a reduction? (7) Before May 1997, the table for number of aliens in Sec. 2L1.1(b)(2) provided increases of two level increments. In May 1997, in response to a directive to increase the enhancement in Sec. 2L1.1(b)(2) by at least 50 percent (see section 203 of the Illegal Immigration Reform and Immigrant Responsibility Act of 1996, Pub. L. 104-208), the Commission amended the table to provide increases of three level increments. At that time, the Commission also similarly amended the table in Sec. 2L2.1 pertaining to the number of documents. The Commission requests comment regarding whether it should amend these tables to provide increases of two level increments. Any such change would be done in a manner that complies with the directive in the Illegal Immigration Reform and Immigrant Responsibility Act of 1996. (8) As an alternative to Option 5 for amending Sec. 2L1.2, the Commission requests comment regarding whether it should provide a guideline that is in essence an inversion of the current structure of Sec. 2L1.2. Currently, Sec. 2L1.2 provides increases based on the type of prior conviction. Should the Commission consider multiple reductions based on the type of prior conviction? 2. Firearms Synopsis of Proposed Amendment: This proposed amendment addresses various issues pertaining to the firearms guideline, Sec. 2K2.1 (Unlawful Receipt, Possession, or Transportation of Firearms or Ammunition; Prohibited Transactions Involving Firearms or Ammunition), and to other firearm provisions in the guidelines. First, the proposed amendment addresses offenses involving a weapon described in 18 U.S.C. 921(a)(30), which expired on September 13, 2004. Although possession of such a weapon is no longer covered by 18 U.S.C. 921, possession of certain weapons, particularly by a prohibited person, may still be considered an aggravating factor warranting an increase in the base offense level. The proposed amendment presents two options for providing increases for possession of weapons previously covered by 18 U.S.C. 921(a)(30). Currently, Sec. 2K2.1 has four base offense level provisions that are triggered by the offense involving such a weapon. Under Option One, each of the four base offense level provisions would be based on whether ``the offense involved a firearm that is a high-capacity, semiautomatic firearm.'' ``High-capacity, semiautomatic firearm'' would be defined as ``a semiautomatic firearm that has a magazine capacity of more than [15] cartridges.'' Option Two would provide an upward departure if the offense involved a high- capacity semiautomatic firearm. The proposed amendment also presents an issue for comment regarding this definition and whether any similar changes should be made to Sec. 5K2.17 (High-capacity, Semiautomatic Firearms). Second, the proposed amendment provides a [2-][4-]level enhancement in Sec. 2K2.1 if the defendant engaged in the trafficking of [2-24] firearms, and a [6-][8-] level enhancement if the defendant engaged in the trafficking of [25 or more] firearms. Although there is no definition of trafficking in the firearm statutes, the proposed amendment borrows from the statutory definition of ``traffic'' found in other sections of the United States Code (see, e.g., 18 U.S.C. 1028(d)(12), and 2318). The proposed amendment, however, modifies the statutory definition in two ways. The first modification pertains to consideration and two options are presented. Option One would result in application of the enhancement whenever a firearm was transferred as consideration for anything of value. (This option would be consistent with the statutory definitions of ``traffic''.) Option Two would result in application of the enhancement only if the transfer was made for pecuniary gain. The second modification is to include ongoing schemes to transport or transfer firearms to another individual, even if nothing of value was exchanged. The proposed amendment also presents an issue for comment regarding the proposed definition of ``trafficking''. Third, the proposed amendment modifies Sec. 2K2.1(b)(4) to increase the penalties for offenses involving altered or obliterated serial numbers. Under the proposed amendment, a 2-level enhancement would continue to apply to offenses involving a stolen firearm. However, the proposed amendment would provide a 4-level enhancement for offenses involving altered or obliterated serial numbers. The 4-level increase reflects the difficulty in tracing firearms with altered or obliterated serial numbers. The proposed amendment also makes slight technical changes to the corresponding application note. Fourth, the proposed amendment addresses a circuit conflict pertaining to application of Sec. Sec. 2K2.1(b)(5) and (c)(1), specifically with respect to the meaning of use of a firearm ``in connection with'' another offense in the context of burglary and drug offenses. The majority of circuits have adopted a standard consistent with Smith v. United States, 508 U.S. 223 (1993), in which the Supreme Court determined the scope of ``in relation to'' as that term is used in 18 U.S.C. 924(c). The proposed amendment accordingly provides that Sec. Sec. 2K2.1(b)(5) and (c)(1) apply if the firearm facilitated, or had the potential of facilitating, another felony offense or another offense, respectively. However, the courts are split as to how this standard then applies with respect to burglary and drug offenses. For ease of presentation, the proposed amendment presents options in terms of whether the presence of a firearm by mere coincidence during the course of a burglary or drug offense ``facilitated or had the potential of facilitating'' another offense. Option One provides that the mere presence of a firearm during the course of burglary or a drug offense is [[Page 4790]] sufficient because the firearm emboldens the defendant. Option Two states that the mere presence of a firearm is not sufficient except in a drug offense. Accordingly, the enhancement in Sec. 2K2.1(b)(5), or the cross reference in Sec. 2K2.1(c)(1) would not apply in the case of a defendant who takes a firearm during a burglary, but it would apply in a drug offense because the mere presence of a firearm in a drug offense increases the risk of violence. Option Three provides that the mere presence is not enough to trigger either Sec. 2K2.1(b)(5) or Sec. 2K2.1(c)(1). (Please note that the proposed definitions of ``another felony offense'' and ``another offense'', as well as the upward departure note, are not new--the proposed language is a technical reworking of current Application Notes 4, 11, and 15.) Fifth, the proposed amendment modifies Sec. 5K2.11 (Lesser Harms) to prohibit a downward departure in any case in which a defendant is convicted under 18 U.S.C. 922(g). Finally, the proposed amendment addresses the circuit conflict regarding whether pointing or waving a firearm at a specific person constitutes ``brandishing'' or ``otherwise using''. The proposed amendment presents three options. Option One combines brandished and otherwise used with respect to firearms under the theory that the same risk of harm, and the same fear, exists whether a firearm is generally waved about or specifically pointed at a particular individual. Under this approach, otherwise using and brandishing with respect to a firearm would result in the same sentencing increase in Sec. Sec. 2B3.1 (Robbery) and 2B3.2 (Extortion by Force or Threat of Injury or Serious Damage). However, the proposed amendment would maintain the distinction between otherwise using or brandishing with respect to other dangerous weapons. Additionally, this option provides that generally waving a firearm would constitute otherwise used. Following this option, the proposed amendment presents an issue for comment regarding whether the Commission, if it adopts this approach, should make similar changes to other guidelines that have an enhancement for brandishing and otherwise using a firearm. Option Two presents the majority and minority circuit court views. The majority view holds that generally waiving or pointing a firearm constitutes brandishing but pointing a firearm at a specific individual to make an explicit or implicit threat, or as a means of forcing compliance, constitutes otherwise used. The minority view holds that pointing a firearm, even if it is pointed at a specific person, is brandishing. In the non- firearms context, otherwise used necessarily includes the most extreme thing that can be done with a weapon (i.e., using it to injure or attempt to injure a victim). Accordingly, these courts hold a firearm must similarly be used to injure or attempt to injure a victim in order to constitute otherwise used, and to hold otherwise would be to obliterate the guidelines' definition of otherwise used. Proposed Amendment (A) 18 U.S.C. 921(a)(30) [Option 1: Section 2K2.1(a) is amended by striking subdivision (1) and inserting the following: ``(1) 26, if (A) the offense involved a firearm that is a high- capacity, semiautomatic firearm, or that is described in 26 U.S.C. 5845(a); and (B) the defendant committed any part of the instant offense subsequent to sustaining at least two felony convictions of either a crime of violence or a controlled substance offense;''; by striking subdivision (3) and inserting the following: ``(3) 22, if (A) the offense involved a firearm that is a high- capacity, semiautomatic firearm, or that is described in 26 U.S.C. 5845(a); and (B) the defendant committed any part of the instant offense subsequent to sustaining one felony conviction of either a crime of violence or a controlled substance offense;''; by striking subdivision (4)(B) and inserting the following: ``(B) the offense involved a firearm that is a high-capacity, semiautomatic firearm, or that is described in 26 U.S.C. 5845(a); and the defendant (i) was a prohibited person at the time the defendant committed the instant offense; or (ii) is convicted under 18 U.S.C. 922(d);''; and by striking subdivision (5) and inserting the following: ``(5) 18, if the offense involved a firearm that is a high- capacity, semiautomatic firearm, or that is described in 26 U.S.C. 5845(a);''. The Commentary to Sec. 2K2.1 captioned ``Application Notes'' is amended in Note 1 by inserting after the paragraph that begins `` `Firearms' has'' the following: ``High-capacity, semiautomatic firearm'' means a semiautomatic firearm that has a magazine capacity of more than [15] cartridges.''.] [Option 2: Section 2K2.1(a) is amended in subdivision (1) by inserting ``(A)'' after ``26, if''; by striking ``or 18 U.S.C. 921(a)(30),'' and inserting a colon; and by inserting ``(B)'' before ``the defendant''; in subdivision (3) by inserting ``(A)'' after ``22, if''; by striking ``or 18 U.S.C. 921(a)(30),'' and inserting a colon; and by inserting ``(B)'' before ``the defendant''; in subdivision (4)(B) by striking ``or 18 U.S.C. 921(a)(30)''; and in subdivision (5) by striking ``or 18 U.S.C. 921(a)(30)''. The Commentary to Sec. 2K2.1 captioned ``Application Notes'' is amended by striking Note 11, as redesignated by Part D of this proposed amendment, and inserting the following: ``11. Upward Departure Provision.''--An upward departure may be warranted in any of the following circumstances: (A) the offense involved a high-capacity, semiautomatic firearm; (B) the number of firearms substantially exceeded 200; (C) the offense involved multiple National Firearms Act weapons (e.g., machineguns, destructive devices), military type assault rifles, non-detectable (``plastic'') firearms (defined at 18 U.S.C. 922(p); (D) the offense involved large quantities of armor-piercing ammunition (defined at 18 U.S.C. 921(a)(17)(B)); or (E) the offense posed a substantial risk of death or bodily injury to multiple individuals (see Application Note 8). For purposes of this guideline, `high-capacity,