United States v. Volungus

595 F.3d 1, 2010 U.S. App. LEXIS 428, 2010 WL 46968
CourtCourt of Appeals for the First Circuit
DecidedJanuary 8, 2010
Docket09-1596
StatusPublished
Cited by214 cases

This text of 595 F.3d 1 (United States v. Volungus) is published on Counsel Stack Legal Research, covering Court of Appeals for the First Circuit primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
United States v. Volungus, 595 F.3d 1, 2010 U.S. App. LEXIS 428, 2010 WL 46968 (1st Cir. 2010).

Opinions

SELYA, Circuit Judge.

We are called upon to determine the constitutionality of a provision of the Adam Walsh Child Protection and Safety Act (Walsh Act), Pub.L. No. 109-248, 120 Stat. 587 (2006), a recently enacted federal law that provides in pertinent part for the civil commitment of a sexually dangerous person already in federal criminal custody in lieu of that person’s release upon service of his full sentence. Id. § 320, 120 Stat. at 619-22, codified at 18 U.S.C. §§ 4241, 4247-4248 (which we shall call, as a shorthand, section 4248). The district court concluded that Congress lacked constitutional authority to enact this civil commitment provision and, therefore, dismissed the government’s petition to enforce it against the respondent, John Charles Volungus; United States v. Volungus, 599 F.Supp.2d 68, 77-78, 80 (D.Mass.2009). The government appeals from that ruling.

After careful consideration, we hold that the civil commitment provision comes within the legitimate scope of congressional power conferred by the Necessary and Proper Clause of the federal Constitution. Consequently, we reverse the decision below and remand for further proceedings.

I. BACKGROUND

The challenged provision of the Walsh Act authorizes the government to seek court-ordered civil commitment of “sexually dangerous” persons who are in the custody of the federal Bureau of Prisons [3]*3(BOP). 18 U.S.C. § 4248(a). A “sexually dangerous person” within the meaning of the Walsh Act is one “who has engaged or attempted to engage in sexually violent conduct or child molestation and who is sexually dangerous to others.” Id. § 4247(a)(5). A person is “sexually dangerous to others” if he “suffers from a serious mental illness, abnormality, or disorder as a result of which he would have serious difficulty in refraining from sexually violent conduct or child molestation if released.” Id. § 4247(a)(6).

Mechanically, the Walsh Act’s civil commitment provision operates in the following manner. A responsible federal official (the Attorney General, the director of the BOP, or the designee of either) may initiate commitment proceedings by petitioning the federal district court in the judicial district in which a targeted person is confined. Id. § 4248(a). The petition must certify to the court that the target, whom we shall call the respondent, “is a sexually dangerous person.” Id. The filing of the petition stays the respondent’s release from federal custody, notwithstanding the expiration of his sentence, “pending completion of procedures” described in the Walsh Act. Id.

Those procedures include an opportunity for the district court to order a mental health examination and to hold a “hearing to determine whether the [respondent named in the petition] is a sexually dangerous person.” Id. § 4248(a)-(c); see id. § 4247(b)-(c). At the hearing, the respondent is entitled to counsel and to the opportunity “to testify, to present evidence, to subpoena witnesses on his behalf, and to confront and cross-examine” the government’s witnesses. Id. § 4247(d).

In prosecuting such a petition, the government has the burden of proving “by clear and convincing evidence that the [respondent] is a sexually dangerous person.” Id. § 4248(d). If the court finds that the government has carried this heavy burden, it must commit the respondent to the custody of the Attorney General. Id. The Attorney General is directed to defer to available state custody; that is, to “release the [respondent] to the appropriate official of the State in which [he] is domiciled or was tried if such State will assume responsibility for his custody, care, and treatment.” Id. In addition, the Attorney General is required “to make all reasonable efforts to cause such a State to assume responsibility.” Id. If such efforts prove unsuccessful, the Attorney General must retain federal custody and place the respondent in a suitable facility for treatment until either an eligible state “will assume ... responsibility” or the respondent’s condition is ameliorated to the extent that “he can safely be released, either conditionally or unconditionally.” Id.

The Walsh Act provides an array of post-commitment safeguards to ensure periodic reevaluation of a committed person’s overall mental condition, potential dangerousness, and suitability for release. These include a requirement for an annual report setting forth a recommendation for or against continued commitment. Id. § 4247(e)(1)(B). If the director of the facility in which the person is confined determines that he is no longer sexually dangerous, the director must notify the court, which must either order the person’s release or schedule a hearing to determine whether release is appropriate. Id. § 4248(e). The person himself, through counsel, may petition the court for such a hearing, but not within 180 days after a judicial determination that commitment is appropriate. Id. § 4247(h).

We turn now from the general to the specific. The respondent here, Volungus, was convicted of receipt of child pornography by means of a computer, possession of [4]*4child pornography, and use of a facility of interstate commerce to attempt to persuade a minor to engage in a sexual act. See 18 U.S.C. §§ 2252(a)(2), 2252A(a)(5)(A), 2422(b). In June of 1999, the United States District Court for the Western District of Kentucky sentenced him to serve a 53-month incarcerative term, to be followed by a period of supervised release. The respondent served his initial prison sentence and embarked on his term of supervised release. He violated the conditions of his supervised release and, as a result, was haled into the United States District Court for the Northern District of New York. That court revoked the supervised release term and remanded him to federal prison for an additional 23-month period of incarceration.

Over time, the BOP housed the respondent in a number of different correctional facilities. The last of these was the Federal Medical Center Devens, in Ayer, Massachusetts (a prison hospital). The respondent was in custody there when the government, before the expiration of his extended term of immurement, commenced a civil commitment proceeding under section 4248 in the United States District Court for the District of Massachusetts. The respondent’s release from prison, scheduled to take place when the sentence imposed following the revocation of supervised release expired on February 15, 2007, was stayed pending the outcome of the commitment proceeding. See 18 U.S.C. § 4248(a).

The respondent moved to dismiss the proceeding, making a facial challenge to the constitutionality of section 4248. The district court obliged, declaring the Walsh Act’s civil commitment regime unconstitutional because Congress lacked the authority to enact it. See Volungus, 599 F.Supp.2d at 77-78. The court, however, stayed the respondent’s release pending the consummation of this appeal. The respondent remains at Devens.

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Bluebook (online)
595 F.3d 1, 2010 U.S. App. LEXIS 428, 2010 WL 46968, Counsel Stack Legal Research, https://law.counselstack.com/opinion/united-states-v-volungus-ca1-2010.