Document: 531 U.S. 230121 S.Ct. 714148 L.Ed.2d 635 NOTICE: This opinion is subject to formal revision before publication in the preliminary print of United States Reports. Readers are requested notify Reporter Decisions, Supreme Court States, Washington, D. C. 20543, any typographical or other errors, order that corrections may be made goes press.CHRISTOPHER A. LOPEZ, PETITIONERv.RANDY J. DAVIS, WARDEN, et al. No. 99-7504. SUPREME COURT OF THE UNITED STATES Argued October 30, 2000 Decided January 10, 2001 Syllabus Under 18 U.S.C. § 3621(e)(2)(B), "[t]he period a [federal] prisoner convicted nonviolent offense remains custody after successfully completing [substance abuse] treatment program reduced by Bureau Prisons" (BOP). The BOP therefore ranked ineligible for early release all inmates incarcerated "crime[s] violence." Initially, defined term "crimes violence" include, among offenses, drug trafficking conviction under 21 841 if offender received two-level sentence enhancement Sentencing Commission, Guidelines Manual (USSG) §2D1.1(b)(1), possessing dangerous weapon connection with offense. Courts Appeals thereafter divided over validity classifying offenses involving firearms possession as crimes violence. Circuit division prompted issue regulation now Court. That denies several categories prisoners, including whose current felony attended "the carrying, possession, use firearm." 28 CFR 550.58(a)(1)(vi)(B). rests this denial not on definition violence," but BOP's asserted discretion prescribe additional criteria. Petitioner Lopez was intent distribute methamphetamine violation 841. Finding possessed firearm his offense, District enhanced two levels pursuant USSG §2D1.1(b)(1). While incarcerated, substance abuse treatment. found him qualified its program, categorically ineligible, 550.58(a)(1)(vi), release. Ordering reconsider Lopez's eligibility release, held count out, based upon sentencing factors underlying crime. Eighth reversed. It reasoned §3621(e)(2)(B)'s "may _ reduc[e]" formulation allows devise regime criteria can uniformly applied. To extent Congress left gap §3621(e)(2)(B) fill, stated, deference owed interpretation Chevron Inc. v. Natural Resources Defense Council, Inc., 467 837, 843_845, 866, so long permissible construction statute. decision deny traffickers who carry firearms, court concluded, represents manifestly statutory and an appropriate exercise discretion. Held: at §3621(e)(2)(B). Pp. 7_14. (a) Section 3621(e)(2)(B) gives grant reduction, leaves open manner which exercised. If inmate meets prerequisites reduction-conviction nonviolence successful completion treatment-then instructs "may," it must, statute's permissive "may" contrasts Congress' mandatory "shall" elsewhere §3621 impose discretionless obligations, e.g., obligation provide when funds available, see §3621(e)(1). Sensibly read, reduction parallels §3621(e)(2)(A) retain completes "under such [custodial] conditions [BOP] deems appropriate." constraints urges-requiring make individualized determinations only postconviction conduct-are nowhere Beyond instructing has reduce imprisonment treatment, identified further circumstance either must forbidden do so. In familiar situation, where enacted law does answer precise question issue, decide whether BOP, agency empowered administer filled way reasonable light Legislature's revealed design. E.g., NationsBank N. C., Variable Annuity Life Ins. Co., 513 251, 257. 7_11. (b) exclude prisoners from their preconviction conduct. rejects argument take into account need blind itself conduct reasonably views jeopardizing life limb. By denying violent offenders, statute manifests congressional concern behavior-and very leading conviction. attend these well. restriction offenders cut short considerations guide implementing See INS Yueh-Shaio Yang, 519 26, 31. also categorical exclusions, rely case-by-case assessments. Even scheme requires determinations, not, decisionmaker authority rulemaking resolve certain issues general applicability unless clearly expresses withhold authority. Heckler Campbell, 461 458, 467. approach pressed Lopez-case-by-case decisionmaking thousands cases each year-could invite favoritism, disunity, inconsistency. 11_13. (c) excluding permissible. concluded inmate's prior involvement commission felony, suggests readiness resort life-endangering violence appropriately determines decision. P. 13. 186 F.3d 1092, affirmed. ON WRIT CERTIORARI TO APPEALS FOR EIGHTH CIRCUIT Ginsburg, J., delivered Court, O'Connor, Scalia, Souter, Thomas, Breyer, JJ., joined. Stevens, filed dissenting opinion, Rehnquist, Kennedy, Opinion Justice Ginsburg 1 provided, Prisons (Bureau BOP) up one year prison program. Bureau's 550.58(a)(1)(vi)(B) (2000). presented case. We hold, accord Circuit, 3621(e)(2)(B). 2 * A 3 Title 3621 governs persons federal crimes. 1990, amended shall available treatable condition addiction abuse." Pub. L. 101_647, §2903, 104 Stat. 4913. Four years later, again §3621, time incentives participation programs. incentive provision reads: "The Prisons, more than otherwise serve." 103_322, §32001, 108 1897 (codified 3621(e)(2)(B)). 4 1995, published rule implement incentive. 60 Fed. Reg. 27692_27695; 550.58. Because explicitly confined "nonviolent offense[s]," currently 27692. As explained statement, include during Program Statement 5162.02, §9 (July 24, 1995), reprinted App. Brief 17_18.1 "[E]xercising [its] reducing sentence," excluded had "for homicide, forcible rape, robbery, aggravated assault." 27692 550.58 (1995)). 5 involved firearm. majority Circuits, Eighth, required look (drug trafficking), (firearm possession), determining offense," eligible Martin Gerlinski, 133 1076, 1079 (CA8 1998); Fristoe Thompson, 144 627, 631 (CA10 Byrd Hasty, 142 1395, 1398 (CA11 Roussos Menifee, 122 159, 164 (CA3 1997); Downey Crabtree, 100 662, 668 (CA9 1996). Fourth Fifth however, upheld classification Pelissero 170 442, 447 (CA4 1999); Venegas Henman, 126 760, 763 (CA5 1997). 6 split Circuits 1997 publish 62 53690_53691. Like 1995 rule, excludes offenses. contrast earlier exclusion defining "prisoner offense" cognate Instead, relies allotted Director granting [enumerated of] inmates." Id., 53690. regulation, designed achieve consistent administration incentive, provides: 7 "(a) Additional (1) vested Federal following release: 8 . 9 "(iv) Inmates have misdemeanor assault, child sexual offenses; 10 11 "(vi) felony: 12 13 "(B) ." 550.58(a)(2000). 14 sum, inmate, because mandates, Drug possess they engage no longer characterized "violent" within meaning But bracketed, purposes, offense[s]" past committed qualifying violent. both armed redicivists, view, "suggest[s] pose particular risk public." Respondents 30. B 15 1997, petitioner Christopher methamphetamine, Upon finding scheduled released June 2002. 16 residential program,2 3_7. 17 When notified he would candidate challenged determination filing petition writ habeas corpus, 2241 South Dakota. granted petition. court's did correct infirmity saw rule. 17_18, n. (citing Martin, F.3d, 1079). "[I]t true," recognized, "that great deal released." 17. But, held, "based possession," 18. Accordingly, ordered "to release." 19. Bellis Davis, 1092 (1999). observed, "states `may Prisons.' " 1094 (quoting discretionary formulation, reasoned, grants entitlement class inmates, noted, instruct "individual, rather categorical, assessments offenses." 1094. that, 866 (1984), 1095. elected notably recidivists carriers, "conduct indicates serious public safety." Ibid. decision, "represents discretion." 19 next why control case, trains regulation: addressed attempt interpret offense"; case address "whether may, discretion, deciding individuals statutorily candidates Facing proper. 20 divided, permissibility (1997) regulation. Tenth Eleventh line decisions invalidating permits exclusions enhancements. Ward Booker, 202 1249, 1256_1257 2000); Kilpatrick Houston, 197 1134, 1135 1999). Ninth hand, agreed precedent permissibly exercised consideration Bowen Hood, 1211, 1218_1220 certiorari conflict, 529 1086 (2000), affirm judgment Circuit. II 22 measure thus we delineate, category those 23 urges unambiguous. He says identifying reductions §3621(e)(2)(B), i.e., barred inmates. "If wanted (beyond Congress), specifically placed language statute." 23. instruction sentences, initially merely enactment could treatment: power give receive reductions." 21. alternately contends "post-conviction conduct," "pre-conviction conduct." Reply 4_5. Acting basis, asserts, "deny [who] eligible, deserve while prison." 5. reading, individual taking solely 24 establishes reduction: met, opposes imposing limitations basis According Bureau, simply "did how should satisfy unaddressed, maintains, course reasonably, Chevron, U.S., 844, arbitrary capricious, 706(2)(A). instance, urges, acted reasonably: Its rationally reflects view displayed endanger another's life; accordingly, interest safety, months advance sentences.3 25 agree position. Preliminarily, note conspicuous anomalies construction. functions determine eligibility, authorization command then word "shall," significance. And conduct, cannot even (perhaps multiple) convictions "homicide, rape , 550.58(a)(1)(iv) For provision, much imprisoned firearm, supra, 4, entails Furthermore, position confine kind already consider credit "satisfactory behavior." 3624(b)(1) ("a [serving less life] toward service prisoner's year, exemplary compliance institutional disciplinary regulations"). 26 turn reading text, completed legislators' same section. Elsewhere used available. 3621(e)(1) ("Bureau shall, availability appropriations, (and arrangements aftercare)"); also, §3621(b) ("The designate place imprisonment_ designating making transfers subsection, there favoritism given high social economic status."). §3621(e)(2)(A). authority, duty, alter confinement imprisonment. 27 issue," "in legislature's design." 257 (1995) 842); Reno Koray, 515 50, 61 (deferring statute). think agency's exclusions. First, dissent recognizes, post, regard kin Attorney General's (1996). authorizing General waive deportation aliens deportable entry fraud. refused alien "acts fraud entry." 27. argued waiver, precluded "at all" relief. rejected stating "establishes alien's waiver. Such limits exercising her who, will accorded grace." Similarly Bureau. Just considered aspects fraud, though criterion conviction, eligibility.4 29 reject argument, echoed part dissent, 5, assessments.5 "[E]ven determinations," authority." American Hospital Assn. NLRB, 499 606, 612 (1991); accord, (1983). 12, 4-could continually revisit "issues established fairly efficiently single proceeding." Heckler, 467.6 30 Having decided hold decision.7 31 reasons 32 Affirmed. NOTES: 841(a)(1) (2) unlawful manufacture, distribute, dispense, controlled substance," create, counterfeit substance." 2D1.1(b)(1) provides §2D1.1(b)(1) comment, (Nov. 2000). qualify "determined problem" "willing participate [the] program." 3621(e)(5)(B)(i), (ii). straddles fence, agreeing addresses unambiguously, disagreeing precisely what says. reads 4_5; words permit (Stevens, dissenting). These divergent readings hardly strengthen dissent's assertion supplied definitive "precise question" issue. 1. creation hurdles receipt defeats purpose giving undergo 24_29. (1996), said "[i]t determined misrepresentation, matter minor attendant circumstances, cause she conferred all, nullity plain rendered §3621(e)'s nullity. total 6,559 2,633 Fiscal Year 1999 alone. Substance Abuse Treatment Programs Report (Jan. Moreover, like do, §§550.57(a)(1), (3) (2000) ("An satisfactory [drug treatment] program," "[l]imited financial awards" "[l]ocal institution preferred living quarters special recognition privileges."). appears acknowledge "near-dispositive weight criteria." Post, 6. heavy structured "[i]ndividualized consideration" allow, seems shade different forthright adopted. Amici urge reversal ground violated notice comment requirements Administrative Procedure Act National Association Criminal Lawyers Curiae 18_24. decline matter, raised below, certiorari. Blessing Freestone, 520 329, 340, (1997). invokes lenity urging us accede interpretation. Because, discussed above, read prohibit reliance unavailing. Caron 524 308, 316 (1998) invoked grammatical possibility. apply ambiguous relied implausible purpose." 33 whom Chief Kennedy join, dissenting. 34 some, were (BOP) outlined I believe answered question. expressly states every reduced." disposition governed first step test announced 842_843 "Congress directly spoken issue." 842. 35 drafting question, faced difficult policy choice: costs offering them return outweighed rewards. initial drafts bill negative See, H. R. Rep. 103_320, p. (1993). However, inclusion inducement soon became fulcrum criticism larger crime embedded.1 Perhaps result criticisms,2 ultimately adopted limited "pris- oner[s] offense[s]." 36 Both text aforementioned history demonstrate ought disqualify unambiguous "violent enacted, commit receiving inducement. 37 here operates redefine set unambiguously group acknowledges "nonviolent" statute3 sanction-categorical ineligibility-upon imposes offenders. doing, ignores Congress's express evaluating salient distinction between moving line, exceeded sought none. ("First, always, clear, end matter; court, well agency, effect expressed Congress"); Haggar Apparel 526 380, 392 (1999) ("In process considering relation specific factual situations, conclude inconsistent unreasonable implementation it. instances, control"). 38 fully become entitled program; reduced" mean "shall Nonetheless, entitle guarantee complete reduction. 39 participates determinations: (2), so, prospects rehabilitation justify whichever most relevant. That, far cry intended obtain consideration.4 40 majority's about risks burdens associated large number understandable yet misguided. fulfill requirements, evaluate seeking "successfully completed" Individualized second involves many personalized go been "successful." answering concomitant administrative burden, are, judgment, benefits encouraging carefully distinguishing earned communities require incarceration. 41 worry might lead "favoritism, inconsistency" similarly misplaced. Ante, suggest imply standardless. today invalidated preclude adopting uniform applications reductions. Nor necessarily dispositive near-dispositive Cf. remain free structure fit doing contravene drafters. preincarceration without exceeding 42 respectfully dissent. Throughout 1993 1994, Republican leaders gave numerous speeches contrasting proposed administration's. One repeatedly stressed aside money Democratic allocated greater difference allegedly reflected differing society criminals. end, criticized criminals provision. 139 Cong. Rec. 27209 (1994) (remarks Sen. Hatch) ("Their violent, sentences reduced, you will, Prisons' Boy, everybody going that. You imagine sincerity that"); 27460 actually decrease inmates-violent included-who Their proposes home alternative sanctions offenders"). House approved version extended prisoners. Senate, pronounced, 1, Conference Committee accepted Senate's limitation. Conf. 103_711, 381 (1994). treats gun carried statute, assumption. notes, ante, 2_4, attempted classify receded today. were, arguments sides quite different, debate likely focusing best understood art colloquial understanding Court's majority, 11, contrary. Yang involve effort benefit characteristic exclusion. Rather, related distinct individual. nature relevant our analysis.

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