United States v. Shannon Cotton

Court of Appeals for the Seventh Circuit·Decided July 26, 2024·No. 23-1591·Published

Opinion

In the

United States Court of Appeals For the Seventh Circuit

No. 23-1591 UNITED STATES OF AMERICA, Plaintiff-Appellant,

v.

SHANNON L. COTTON, Defendant-Appellee.

Appeal from the United States District Court for the Central District of Illinois.

No. 2:07-cr-20019-MMM-EIL-1 — Michael M. Mihm, Judge.

ARGUED DECEMBER 12, 2023 — DECIDED JULY 26, 2024

Before SCUDDER, ST. EVE, and PRYOR, Circuit Judges. SCUDDER, Circuit Judge. Shannon Cotton violated his supervised release by using cocaine and losing all contact with his probation officer. After the district court revoked the release , a dispute arose over the maximum period of imprisonment Cotton could face for the violations. The district court determined that the answer was two years, disagreeing with the government’s contention that Cotton faced a maximum revocation sentence of five years. The question is difficult but, 2 No. 23-1591

in the end, we conclude the answer is five years based on the language Congress used in 18 U.S.C. § 3583(e)(3). That leads us to vacate Cotton’s revocation sentence and to remand for resentencing.

I

Even though the question presented is primarily one of statutory construction, the issue presented arises from a complex procedural history. What’s important is keeping track of Cotton’s original conviction and sentence, the discretionary sentence reduction he later received, and intervening changes in law.

Everything began in 2007, when Cotton pleaded guilty in federal court to two counts of violating 21 U.S.C. § 841(a)(1), (b)(1)(B) for distributing and possessing with intent to distribute at least five grams of cocaine. Each count brought with it a mandatory minimum term of five years’ imprisonment and a maximum term of forty years. See id. § 841(b)(1)(B), (b)(1)(B)(iii) (2007). But Cotton’s sentencing exposure increased to a mandatory minimum of 10 years and a maximum of life because the government, as was its right, invoked 21 U.S.C. § 851 and filed prior felony information based on Cotton ’s two prior Illinois felony convictions for possessing and delivering cocaine in violation of 720 ILCS 570-401(c)(2), (d)(i).

At sentencing the district court applied the Sentencing Guidelines, determined that Cotton qualified as a career offender , and imposed a sentence of 262 months (almost 22 years) and eight years of supervised release.

In 2010, and while Cotton was serving his sentence, Congress passed the Fair Sentencing Act. See Pub. L. 111-220, 124

No. 23-1591 3

Stat. 2372 (Aug. 3, 2010). The statute altered the threshold of crack cocaine required to trigger certain statutory minimum and maximum sentences under 21 U.S.C. § 841—the statute under which Cotton had been convicted. Specifically, Congress increased the quantity of cocaine necessary to trigger a mandatory minimum five-year term of imprisonment from 5 grams to 28 grams. By its terms, however, the Fair Sentencing Act applied only prospectively, not retroactively.

The law later changed again, this time in a way favorable to Cotton. In 2018 Congress enacted the First Step Act, giving district courts the discretion to resentence an applicant “as if” the new penalties of the Fair Sentencing Act were in effect at the time of the commission of the offense. See Pub. L. 115-391, 132 Stat. 5194 (Dec. 21, 2018). Cotton noticed the change in law and moved for a reduction in his sentence. The district court granted his motion and, in its discretion, reduced Cotton’s sentence from 262 months to 188 months. The district court’s order also expressly stated that “[e]xcept as provided above, all provisions of the [original] judgment dated 11/20/2007 shall remain in effect.”

Cotton finished serving his sentence in the fall of 2020 and began his term of supervised release. As too often happens, though, Cotton’s struggle with substance abuse and drug dealing got the better of him, leading in time to his probation officer petitioning the district court to revoke supervised release based on positive tests for using cocaine and marijuana and being arrested for possessing a sizeable quantity of marijuana .

A dispute then arose about the maximum revocation sentence Cotton faced for his violations of supervised release. Consistent with the view of the Probation Office, the 4 No. 23-1591

government took the position that the answer was five years. But Cotton believed any revocation sentence could not exceed two years. The different perspectives rooted themselves primarily in competing interpretations of 18 U.S.C. § 3583(e)— the statutory provision addressing maximum penalties attaching to revocations of supervised release.

The district court grappled with the statutory questions and in the end sided with Cotton and imposed a revocation sentence of two years with a new three-year term of supervised release to follow.

The government now appeals, renewing the legal contentions it pressed in the district court.

II

A

The proper starting point is § 3583(e)(3), which tell us that a court, upon finding a violation of supervised release, may revoke a term of supervised release, and require the defendant to serve in prison all or part of the term of supervised release authorized by statute for the offense that resulted in such term of supervised release ... except that a defendant whose term is revoked under this paragraph may not be required to serve on any such revocation more than 5 years in prison if the offense that resulted in the term of supervised release is a class A felony, more than 3 years in prison if such offense is a class B felony, more than 2 years in prison if such offense is a class C or D felony, or more than one year in any other case.

No. 23-1591 5

Id. § 3583(e)(3).

Notice at a basic level how Congress structured this provision : by hinging the maximum revocation sentence upon the class of felony—A, B, C, or D—of the offense of conviction. What the parties dispute is the measurement point—whether the § 841 conviction is a class A, B, C, or D felony as a function of Cotton’s 2007 judgment (the government’s view) or, instead whether the class of felony turns on what the conviction and sentence would be under current law (Cotton’s view).

An altogether different statute—18 U.S.C. § 3559—provides an essential link in the chain of reasoning necessary to answer who has the better interpretation of § 3583(e)(3). Class A felonies are those with a maximum prison sentence of life. 18 U.S.C. § 3559(a)(1). Class B felonies are those with a maximum term of 25 years or more (but less than life). Id. § 3559(a)(2). Class C felonies are those with a maximum term of 10 to 25 years in prison. Id. § 3559(a)(3). And, finally, class D felonies are those whose maximum is less than ten but five or more years. Id. § 3559(a)(4).

Returning to § 3583(e)(3), both sides insist that the statute’s plain language supports their respective positions, with the government urging us to focus on Congress’s use of the past tense when stating that the class-of-felony determination depends on “the offense that resulted in such term of supervised release.” For the government, then, Cotton faced a maximum revocation sentence of five years because his original conviction in 2007 under § 841(a) and (b)(1)(B) exposed him to a maximum sentence of life imprisonment—a class A felony. The government gets there by reminding us that its filing of the § 851 prior felony information in Cotton’s original case 6 No. 23-1591

had the effect of increasing the statutory maximum sentence from 40 years to life.

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