Section 230 of the Communications Decency Act, the FOSTA Amendment, and its Impact on Online Sex Trafficking

By Kaitlyn Wells

 

Historically, human trafficking has plagued societies for centuries, and modern advancements in science and technology have contributed to an increase in trafficking.  A contributing factor to the rise of human trafficking victims is the internet.  Section 230 of the Communications Decency Act (hereinafter “CDA”) played a significant role in the promotion of online sex trafficking.[1]  CDA § 230 provides immunity to providers and users of interactive computer services who publish information provided by third parties.[2]  “No provider or user of an interactive computer service shall be treated as the publisher or speaker of any information provided by another information content provider.”[3]

Websites such as Backpage.com have shielded themselves behind the CDA, an act created to regulate pornographic material on the internet, to avoid state criminal and civil litigation.[4]  The federal government had remained silent on this increasingly alarming issue until recently when the Senate passed a bill, called “The Allow States and Victims to Fight Online Sex Trafficking Act” (hereinafter “FOSTA”).[5]  President Donald Trump signed the bill into law on April 11, 2018.[6]

Section 2 of FOSTA states that § 230 of the CDA was not intended to afford legal protection to websites that “promote and facilitate prostitution and websites that facilitate traffickers in advertising the sale of unlawful sex acts with sex trafficking victims.”[7]  Since President Trump has signed the bill into law, FOSTA has met a great deal of criticism.  In June of 2018, The Electronic Frontier Foundation filed complaints in federal district court claiming FOSTA’s broad scope violates the First Amendment right to free speech.[8]  FOSTA, an amendment to § 230 of the CDA, is a necessary step towards combating online sex trafficking.  Part I will discuss a brief history of § 230 of the CDA; Part II will provide a brief history of sex trafficking; Part III will discuss the correlation between the CDA and online sex trafficking; and Part IV will discuss FOSTA and its critics.

Part I: The History of Section 230 of the CDA

Senator Jim Exon of Nebraska introduced the 1996 Amendment to the CDA.[9]  This Amendment extended the anti-harassment, indecency and anti-obscenity restrictions that were already placed on telephone calls to “telecommunication devices” and “interactive computer services.”[10]  The 1996 Amendment to the CDA stood for the premise that it was just as wrong to provide pornography to children on computers as it was to do it on the street or anywhere else.[11]  The CDA made it a crime to knowingly use an interactive computer to send indecent material in a mode accessible to children.[12]  The CDA does not ban any constitutionally protected materials from adults.  The Supreme Court has repeatedly recognized that protecting children from indecency is a compelling state interest.[13]   Congress modeled the CDA “after the existing dial-a-porn law which allow[ed] telephone sex services to ply their wares to adults but prohibit[ed] access by minors.”[14]  The Supreme Court held that the dial-a-porn law did not violate the First Amendment.[15]

In August of 1995, the Cox-Wyden Amendment was enacted which modified the CDA, and later became § 230 of the act.  The Cox-Wyden Amendment protected online services that make a “good faith effort” to restrict access to offensive material.[16]  “No provider or user of an interactive computer service shall be treated as the publisher or speaker of any information provided by another information content provider.”[17]  Many cases have been dismissed based on interactive service providers asserting the defense that, pursuant to § 230 of the CDA, they were not in violation of any laws.  More simply stated, providers and users assert the defense that they cannot be held liable for the actions of third-party publishers or speakers.[18]

In Zeran v. America Online, Inc.,[19] a customer sued America Online, an internet service provider, in federal district court because of alleged unreasonable delay in removing defamatory messages posted by an anonymous third-party user.[20]  The district court ruled in favor of America Online because section 230 of the CDA barred the customer’s claims.[21]  The district court held that Congress measured the weight of the speech interests implicated and elected to immunize service providers to avoid any restrictive result.[22]  The Fourth Circuit held that Congress intended to give broad immunity to internet providers when faced with possible liability because of messages originated by third-party users.[23]

For years, websites have been immune from liability under the CDA § 230 as long as the website is an interactive computer service and the posting is that of a third-party publisher or speaker.  It was not until websites began using this shield to avoid legal action regarding sex trafficking that the government finally stepped in.

Part II: History of Online Sex Trafficking

The National Human Trafficking Hotline (hereinafter “NHTH”) is a national anti-trafficking hotline servicing victims and survivors of human trafficking, as well as the anti-trafficking community in the United States.[24]  Since 2007, the NHTH reported a total of approximately 28,291 cases of sex trafficking, and in 2017 alone, the NHTH reported approximately 5,579 sexually trafficked victims, 1,954 of which were minors.[25]  NHTH defines trafficking as “[t]he recruitment, harboring, transportation, provision, obtaining, patronizing, or soliciting of a person for the purposes of a commercial sex act, in which the commercial sex act is induced by force, fraud, or coercion, or in which the person induced to perform such an act has not attained 18 years of age.”[26]  Human trafficking is the third fastest growing criminal activity.[27]  According to the International Labor Organization, there are approximately 40.3 million victims of human trafficking worldwide, with hundreds of thousands in the United States alone.[28]  In the United States a person is guilty of sex trafficking by force, fraud or coercion, under federal law, when:

(a)Whoever knowingly—

(1) in or affecting interstate or foreign commerce, or within the special maritime and territorial jurisdiction of the United States, recruits, entices, harbors, transports, provides, obtains, advertises, maintains, patronizes, or solicits by any means a person; or

(2) benefits, financially or by receiving anything of value, from participation in a venture which has engaged in an act described in violation of paragraph (1), knowing, or, except where the act constituting the violation of paragraph (1) is advertising, in reckless disregard of the fact, that means of force, threats of force, fraud, coercion described in subsection (e)(2), or any combination of such means will be used to cause the person to engage in a commercial sex act, or that the person has not attained the age of 18 years and will be caused to engage in a commercial sex act, shall be punished as provided in subsection (b).[29]

 

Under the United States definition, transportation or physical movement of the victim does not necessarily need to be present for the crime to occur.[30]  The mere presence of exploitation (force, fraud, or coercion) indicates whether a trafficking crime has occurred.[31]

Victims of sex trafficking can be in any number of services within the sex trafficking industry including, but not limited to, prostitution, strip clubs, live-sex shows, mail-order brides, escort services, and fake massage businesses.  Many victims of sex trafficking are sold and bought online through websites like Craigslist, Backpage, HarlotHub, Eros, and Switter, to name a few.  A common misconception about human trafficking is that the victims are all trafficked into the United States from other countries.  This is simply not the case.  While some victims are trafficked and transported into the United States, many of the trafficking victims are United States citizens.[32]  There is no single profile for trafficking victims; trafficking occurs in rural, suburban, and urban communities across the country.[33]  Victims of human trafficking can be adults and children and have diverse socio-economic backgrounds and different levels of education.[34]  Traffickers target victims using methods of recruitment and control that they find to be effective in compelling that victim into commercial sex.[35]  The internet alone allows for many people from all walks of life to fall victim to sex trafficking.[36]

Part III: The Correlation between the CDA and Online Sex Trafficking

Section 230 was intended to shield interactive internet sites from liability for subject matter posted by their users.[37]  It treats internet companies like libraries: a library is not responsible for the offense people take to the content of the books it carries, just like a website is not responsible for the offense that people take to comments and posts by other users.[38]  Backpage.com is a classified advertising website that was launched in 2004 and is similar to Craigslist.[39]  Backpage is most known for its “adult” classifieds section.  Backpage featured ads from prostitutes, escorts, and sex trafficking victims.[40]  Websites such as Backpage have shielded themselves behind the CDA to avoid state criminal and civil litigation.

Backpage consistently used § 230 of the CDA as a defense against liability until the FBI seized Backpage in February of 2018.[41]  Backpage would cite to the statute’s language that states “no provider or user of an interactive computer service shall be treated as the publisher or speaker of any information provided by another information content provider.”[42]  Backpage claimed that it could not be charged for online users content, i.e., a pimp posting an advertisement prostituting a victim of sex trafficking.[43]  The most notorious case regarding Backpage is Doe v. Backpage.com, LLC.[44]  In Doe, three sex trafficking victims sued Backpage.com alleging that Backpage created or changed, expressly or impliedly, the advertisements regarding these victims on its website.[45]  More specifically, Jane Doe 1, Jane Doe 2, and Jane Doe 3 alleged that Backpage violated the Trafficking Victims Protection Reauthorization Act of 2008, 18 U.S.C. § 1595; Massachusetts Anti-Human Trafficking and Victim Protection Act of 2010, Mass. Gen. Laws ch. 265, section 50; and Massachusetts Consumer Protection Act, Mass. Gen. Laws ch. 93A, section 9.[46]  Each Doe also alleged violations of their individual intellectual property rights.[47]  With regard to Jane Doe 1 and Jane Doe 2, the court held that their complaint was lacking factual allegations that reasonably supported the claim that Backpage created content.[48]  Therefore, the CDA barred their claims.[49]  However, with regard to the ad about Jane Doe 3, the court held that Backpage substantially changed the ad.[50]  Therefore, the CDA did not bar Jane Doe 3’s claims.[51]  There is no doubt that the actions of Backpage.com consistently hiding from liability under § 230 of the CDA was a factor Congress looked to when deciding whether to pass the FOSTA.

Part IV: The FOSTA and its Critics

The FOSTA was signed into law by President Trump on April 11, 2018.[52]  This Act is an amendment to 47 U.S.C. § 230.  FOSTA was necessary to express that it was not the intention of Congress to afford legal protection to websites that “promote and facilitate prostitution and websites that facilitate traffickers in advertising the sale of unlawful sex acts with sex trafficking victims.”[53]  More specifically, the FOSTA states:

(1) section 230 of the Communications Act of 1934 (47 U.S.C. § 230; commonly known as the “Communications Decency Act of 1996”) was never intended to provide legal protection to websites that unlawfully promote and facilitate prostitution and websites that facilitate traffickers in advertising the sale of unlawful sex acts with sex trafficking victims;

(2) websites that promote and facilitate prostitution have been reckless in allowing the sale of sex trafficking victims and have done nothing to prevent the trafficking of children and victims of force, fraud, and coercion; and

(3) clarification of such section is warranted to ensure that such section does not provide such protection to such websites.[54]

 

In response to FOSTA, the website Craigslist.com released a statement expressing that, due to FOSTA, Craigslist.com can be subject to criminal and civil liability when third-party users of the website misuse Craigslist’s personal advertisement section unlawfully.[55]  Craigslist further stated “[a]ny tool or service can be misused.  We can’t take such risk without jeopardizing all our other services, so we are regretfully taking craigslist personals offline.”[56]  A pimp can no longer solicit a sex trafficking victim on Craigslist.  However, an advocate for sex workers could argue that sex workers can no longer find work through Craigslist or Backpage.com, forcing him or her to look to the dark web or the streets for a job.

Prior to the FOSTA Amendment, the CDA was praised as a “core pillar of internet freedom” and “the most important law protecting free speech online” that “gave us the modern internet.”[57]  The Electronic Frontier Foundation (hereinafter “EFF”), a nonprofit that defends civil liberties in the digital world, is afraid that the increased potential for liability will cause online services to become much more restrictive and “err on the side of censorship.”[58]  The EFF was founded in 1990 and works to ensure that rights and freedoms are protected as the internet grows.[59]  According to the EFF, “FOSTA attacks online speakers who speak favorably about sex work by imposing harsh penalties for any website that might be seen as ‘facilitating’ prostitution or ‘contribute to sex trafficking.’”[60]

FOSTA is necessary to combat online sex trafficking.  There were flaws in the CDA that made FOSTA necessary.  The biggest flaw of the CDA was the enablement of Backpage using 47 U.S.C.S. § 230(c) as a shield, thereby allowing traffickers to use the website to sexually exploit victims on their website.[61]  A perfect example of Backpage using the CDA as a shield is the Doe case.[62]  However, if Doe were to have occurred after the enactment of FOSTA, Backpage would not have been able to hide behind the CDA so long as the plaintiffs could prove that Backpage promoted and facilitated prostitution and had done nothing to prevent the trafficking of children and victims.  After Backpage was seized, the CEO of Backpage, Carl Ferrer, pleaded guilty in three state courts to money laundering and conspiracy to facilitate prostitution.[63]  Backpage was doing precisely what the CDA was not supposed to protect—changing and creating ads and knowingly taking money from pimps to post ads on its website exploiting trafficking victims.[64]

In June of 2018, the EFF filed a complaint in federal district court claiming FOSTA’s broad scope violates the First Amendment.[65]  The EFF released a statement on its website about the lawsuit stating that it is asking the court to deem FOSTA unconstitutional.[66]  It further explains that, in its own opinion, the “law was written so poorly that it actually criminalizes a substantial amount of protected speech and, according to experts, actually hinders efforts to prosecute sex traffickers and aid victims.”[67]  This is simply untrue; the FOSTA was specifically created to help stop sex trafficking.  Senator Rob Portman, from Ohio, one of the creators of the law, explained that the FOSTA is not a free speech issue but instead about protecting victims of sex trafficking.[68]  The CDA protects websites so long as a website is not knowingly promoting or facilitating prostitution, which is a crime in forty-nine states, and facilitating traffickers in advertising sex trafficking victims.[69]  There is a compelling government interest in protecting people (adults and children) from being sexually exploited online.

Section 230 of the CDA limits the legal liability of interactive websites for content that was posted by a third party.  Section 2 of the FOSTA states that § 230 of the Communications Act of 1934 was not intended to afford legal protection to websites that “promote and facilitate prostitution and websites that facilitate traffickers in advertising the sale of unlawful sex acts with sex trafficking victims.”[70]  While the EFF argues that the FOSTA violates the First Amendment, the FOSTA is a necessary and long overdue amendment to the CDA and is a massive step towards combating online sex trafficking.

[1] Danah Boyd et al., Human Trafficking and Technology: A Framework for Understanding the Role of Technology in the Commercial Sexual Exploitation of Children in the U.S., http://www.indiana.edu/~traffick/_resources/_literature/_research/_assets/Human-Trafficking-and-Technology.pdf

[2] 47 U.S.C.S. § 230 (LexisNexis 2018).

[3] Id.

[4] Id.  Section 230 of the CDA was not part of the original Senate legislation but was separately introduced by Representatives Chris Cox of California and Ron Wyden of Oregon as the Internet Freedom and Family Empowerment Act.  Congressional Record, Congress.gov (Aug. 4, 1995), https://www.congress.gov/congressional-record/1995/08/04/house-section/article/H8460-1.  Cox and Wyden wanted to make sure that, while everyone in the United States has an open invitation to the internet, there is certain offensive material that children should not see.  Id.  The statute was intended to screen offensive material and to provide protection from taking on liability to computer “Good Samaritans,” which are online service providers who take steps to screen indecent and offensive material for their customers.  Id.  Section 230 established as policy that the United States does not wish to have content on the internet regulated by the Federal Government.  Id.

[5] Colin Lecher, Senate Passes Controversial Anti-Sex Trafficking Bill, Verge (Mar. 21, 2018, 4:23 PM), https://www.theverge.com/2018/3/21/17147688/senate-sesta-fosta-vote-anti-sex-trafficking.

[6] Tom Jackman, Trump signs ‘FOSTA’ Bill Targeting Online Sex Trafficking, Enables States and Victims to Pursue Websites, Wash. Post (April 11, 2018), https://www.washingtonpost.com/news/true-crime/wp/2018/04/11/trump-signs-fosta-bill-targeting-online-sex-trafficking-enables-states-and-victims-to-pursue-websites/?noredirect=on&utm_term=.21bafe66e9fd.

[7] 115 Pub. L. No. 164, 132 Stat. 1253 (2018).

[8] David Greene, EFF Sues to Invalidate FOSTA, an Unconstitutional Internet Censorship Law, EFF (June 28, 2018), https://www.eff.org/deeplinks/2018/06/eff-sues-invalidate-fosta-unconstitutional-internet-censorship-law.

[9] Robert Cannon, The Legislative History of Senator Exon’s Communications Decency Act: Regulating Barbarians on the Information Superhighway, 49 Fed. Comm. L.J. 51 (1996).

[10] Id. at 51.   An interactive computer service is “any information service, system, or access software provider that provides or enables computer access by multiple users to a computer server, including specifically a service or system that provides access to the Internet and such systems operated or services offered by libraries or educational institutions.”  47 U.S.C.S. § 230(f)(2) (LexisNexis 2018).

[11] Cannon, supra note 9, at 77.

[12] Cannon, supra note 9, at 57.

[13] Cannon, supra note 9, at 58.

[14] Jim Exon, The Communications Decency Act, 49 Fed. Comm. L.J. 95, 96 (1996).

[15] Id. at 96.  See Sable Commc’ns of Cal. v.   FCC, 492 U.S. 115 (1989).  Congress took great care in drafting the law to protect children from indecency as the Supreme Court had consistently acknowledged that as a compelling state interest.  Exon, supra note 14, at 96.

[16] Cannon, supra note 9, at 61.

[17] 47 U.S.C.S. § 230 (LexisNexis, 2018).

[18] Id.  § 230(c).

[19] 129 F.3d 327 (4th Cir. 1997).

[20] Id. at 328.

[21] Id. at 329.

[22] Id. at 331.

[23] Id. at 328.

[24] Human Trafficking, Human Trafficking Hotline, https://humantraffickinghotline.org/type-trafficking/human-trafficking (last visited Sept. 1, 2018).

[25] Id.

[26] Id.

[27] Id.

[28] Id.

[29] 18 U.S.C.S. § 1591 (LexisNexis 2018).

[30] Id.; 18 U.S.C.S. § 1584.  Fact Sheet: Human Trafficking, Office on Trafficking in Persons (Nov. 21, 2017), https://www.acf.hhs.gov/otip/resource/fshumantrafficking

[31] Fact Sheet: Human Trafficking, supra note 30.

[32] Fact Sheet: Human Trafficking, supra note 30.

[33] Fact Sheet: Human Trafficking, supra note 30.

[34] Fact Sheet: Human Trafficking, supra note 30.

[35] Fact Sheet: Human Trafficking, supra note 30.

[36] In Los Angeles, police arrested a teenage girl for prostitution.  U.S. Attorney’s Office, Man Pleads Guilty and Is Sentenced to 17½ Years in Federal Prison for Sex Trafficking of Minors, Fed. Bureau Investigation: L.A. Division, June 10, 2010, http://www.fbi.gov/losangeles/press-releases/2010/la061010.htm.  Investigators learned that the teenage girl was a runaway working for Dwayne Lawson.  Lawson “contacted the girl in the fall of 2008 on Myspace.com and, after promising to make her a ‘star,’ gave her a bus ticket from Florida to Las Vegas, Nevada.”  Id.  Once the teen arrived in Nevada, Lawson brought the girl to California where she worked for him as a prostitute.  Id.

[37] 47 U.S.C.S. § 230 (LexisNexis 2018).

[38] Emily Stewart, The Next Big Battle Over Internet Freedom is Here, Vox (Apr. 23, 2018, 12:20 PM), https://www.vox.com/policy-and-politics/2018/4/23/17237640/fosta-sesta-section-230-internet-freedom.

[39] Derek Hawkins, Backpage.com Shuts down Adult Services Ads after Relentless Pressure from Authorities, Washington Post, (January 10, 2017) https://www.washingtonpost.com/news/morning-mix/wp/2017/01/10/backpage-com-shuts-down-adult-services-ads-after-relentless-pressure-from-authorities/?utm_term=.5baa004c9824.

[40] Martha Irvine, Backpage Ad Site: Aider of Traffickers, or Way to Stop Them?, Seattle Times (Aug. 16, 2015, 6:44 PM), https://www.seattletimes.com/seattle-news/backpage-ad-site-aider-of-traffickers-or-way-to-stop-them/.

[41] Doe v. Backpage.com, LLC, No. 17-11069-LTS, 2018 U.S. Dist. LEXIS 53198 (D. Mass. Mar. 29, 2018); Backpage.com, LLC v. Lynch, 216 F. Supp. 3d 96 (D.D.C. 2016); Backpage.com, LLC v. Cooper, 939 F. Supp. 2d 805 (M.D. Tenn. 2013); Backpage.com, LLC v. Dart, No. 15 C 06340, 2015 U.S. Dist. LEXIS 112161 (N.D. Ill. Aug. 24, 2015).

[42] 47 U.S.C.S. § 230(c) (LexisNexis, 2018).

[43] Doe v. Backpage.com, LLC, No. 17-11069-LTS, 2018 U.S. Dist. LEXIS 53198, *5 (D. Mass. Mar. 29, 2018).

[44] Id.

[45] Id at *3.

[46] Id. at *2.

[47] Id.

[48] Id.

[49] Id. at *5.

[50] Id.

[51] Id.

[52] Colin Lecher, Senate Passes Controversial Anti-Sex Trafficking Bill, Verge (Mar. 21, 2018, 4:23 PM), https://www.theverge.com/2018/3/21/17147688/senate-sesta-fosta-vote-anti-sex-trafficking.

[53] 115 Pub. L. No. 164, 132 Stat. 1253 (2018).

[54] Id.

[55] FOSTA, Craigslist, https://www.craigslist.org/about/FOSTA (last visited Sept. 1, 2018).

[56] Id.

[57] Greene, supra note 8.

[58] Id.

[59] Id.

[60] Anna Schecter & Dennis Romero, FOSTA Sex Trafficking Law Becomes Center of Debate About Tech Responsibility, NBC News (July 19, 2018, 3:33 PM), https://www.nbcnews.com/tech/tech-news/sex-trafficking-bill-becomes-center-debate-about-tech-responsibility-n892876.

[61] Doe v. Backpage.com, LLC, No. 17-11069-LTS, 2018 U.S. Dist. LEXIS 53198, (D. Mass. Mar. 29, 2018); Backpage.com, LLC v. Lynch, 216 F. Supp. 3d 96 (D.D.C. 2016); Backpage.com, LLC v. Cooper, 939 F. Supp. 2d 805 (M.D. Tenn. 2013); Backpage.com, LLC v. Dart, No. 15 C 06340, 2015 U.S. Dist. LEXIS 112161 (N.D. Ill. Aug. 24, 2015).

[62] Doe v. Backpage.com, LLC, No. 17-11069-LTS, 2018 U.S. Dist. LEXIS 53198 (D. Mass. Mar. 29, 2018).

[63] Backpage CEO Carl Ferrer Says He’ll Testify Against Site’s Founders, NBC News (Apr. 12, 2018, 9:41 PM), https://www.nbcnews.com/news/us-news/backpage-ceo-carl-ferrer-says-he-ll-testify-against-site-n865616.

[64] Id.

[65] New Lawsuit Challenges FOSTA–The Federal Law Sparking Website Shutdowns, EFF (June 28, 2018), https://www.eff.org/press/releases/new-lawsuit-challenges-fosta-federal-law-sparking-website-shutdowns.

[66] Greene, supra note 8.

[67] Greene, supra note 8.

[68] Schecter & Romero, supra note 60.

[69] 47 U.S.C.S. § 230(c) (LexisNexis 2018).

[70] 115 Pub. L. No. 164, 132 Stat. 1253 (2018).

How To Get Away With Murder: The “Gay Panic” Defense

by Omar T. Russo

 

Introduction

In April of 2018, a jury found 69-year-old James Miller of Austin, Texas not guilty of murder for the 2015 slaying of his neighbor, Daniel Spencer.[1]  The jury convicted Miller of criminally negligent homicide, a crime that earned him a mere six months in jail and ten years of probation.[2]  Miller invited Spencer, his 32-year-old neighbor, to his house where they drank and listened to music; the two were musicians.[3]  According to Miller, he rejected a kiss from Spencer and stabbed him in a panic.[4]

Miller’s defense counsel argued that he acted in self-defense, which is one of the defenses defendants may assert, known unofficially as the “gay panic” defense.[5]  Only a handful of states have enacted legislation to proactively ban the defense, and similar legislation is pending at the federal level, in several states, and in the District of Columbia.[6]

The so-called “gay panic” defense stems from a phenomenon originally coined by psychotherapist Edward J. Kempf in 1920, who claimed that in his studies of heterosexual-identifying males, they became agitated, enraged and panicked by their acute homosexual thoughts or ideas.[7]  The concerns for psychological breakdown described by Kempf were not out of touch with the times, given the classification of “homosexuality” as a medically-recognized disorder until 1973.[8]

Today the gay panic defense continues to be used to influence jurors to mitigate a violent defendant’s conviction or sentence based on the premise that the victim was romantically interested in the defendant of the same sex that, consequently, struck some panic within the defendant and caused him or her to react violently.  The defense, based upon irrational “homophobia and transphobia, . . . send[s] the wrong message that violence against LGBT people is acceptable.”[9]  In an era post-pathological homosexuality, cases such as these move the focus of the case from the defendant to the victim.[10]  In order for this defense to work, defendants must prove that “the victim’s unwanted, nonviolent homosexual advance was characterized as an external stimulus causing the defendant’s homicidal reaction.”[11]

The basis for this defense is highly troublesome for another reason, namely, its equal protection implications.  If we swapped the victim’s supposed sexual identity with a religious identity or racial identity, then the defense would crumble.  Contemporarily, a defense of panic based on arbitrary characteristics of another person is illogical and poorly reflective of our current state of law, justice, and societal opinion.  The gay panic defense continues to perpetuate the message that LGBT people are frightening and somehow instill reasonable fear in people; that an LGBT individual’s unwanted and nonviolent romantic attempts are justification for violence and even murder.  To bring the issue of a victim’s sexual orientation to focus as a defense tactic is “like placing a woman’s sexual promiscuity at issue to show consent to rape.”[12]

Origins of the Gay Panic Defense

The first known use of the gay panic defense was the California case of People v. Rodriguez,[13] where the defendant argued that the victim touched him sexually while he urinated in an alley.[14]  In Rodriguez, the defendant beat to death an elderly man with a tree branch after following him into his yard where he was emptying his garbage.[15]  The defendant, however, argued that after his friends stole a woman’s purse, he ran to urinate in an alley and was grabbed in the process from behind.[16]  Fearing the man was “trying to engage in a homosexual act,” the defendant picked up the branch and beat the victim over the head.[17]

An expert testified at trial that the defendant was not acting under “acute homosexual panic,” but was sane when he committed the murder.[18]  The jury returned a verdict of guilty for murder in the second degree, rather than for murder in the first degree, with which the defendant was originally charged.[19]  This case opened the door for the gay panic defense as a mitigating factor for defendants’ violent actions.  Although the expert physician provided testimony as to the defendant’s sanity, which the jury accepted, the pervasive nature of the defendant’s story of having been touched while urinating led to a reduced conviction.

A Deeply Rooted LGBT Bias in the Law

As anti-gay sentiment grew in the first half of the twentieth century, laws developed to reflect the national opinion.  Through the enforcement of sodomy laws, many states engaged in “witch hunts” of gay men, which were the legal methods of criminalizing “gay conduct.”[20]  These sodomy laws were upheld by the Supreme Court’s 1986 landmark case, Bowers v. Hardwick,[21] in which the Court upheld a strict Georgia sodomy statue.  The defendant argued the statute that criminalized sodomy violated his constitutional rights to privacy and due process.[22]  Ultimately, the Court ruled in favor of Georgia,[23] essentially validating the sodomy laws of that state and others that were being used to punish gay men across the country.

The issue of sodomy laws would not be revisited by the Court until 2003, when it overturned its ruling in Bowers with its holding in Lawrence v. Texas.[24]  The Court held that the Texas sodomy statute that formed the basis for the case served “no legitimate state interest which [could] justify its intrusion into the personal and private life of the individual.”[25]  The Court set out that the Due Process Clause provides individuals the “full right to engage in their conduct without intervention of the government,” effectively invalidating state statutes prohibiting similar conduct to the Texas statute.[26]

The Impact of the Gay Panic Defense

Lawrence v. Texas stands, today, as a precursor to the national progression of LGBT rights.  Over a decade later, the Supreme Court continued its momentum in this area with its ruling in Obergefell v. Hodges,[27] effectively providing the right to marry to all citizens of the United States.[28]

Despite the public’s progressing views toward LGBT persons, and the law’s reluctant evolution in the same direction, gays and transgenders face violence at disproportionately high rates compared to any other group of people.[29]  The gay panic defense perpetuates the continued violence against LGBT persons by allowing perpetrators to have their sentences mitigated or avoid punishment entirely, solely on the basis of their victim’s actual or perceived sexual orientation or gender identity.[30]

While the gay panic defense itself is unrecognized in any jurisdiction in the country, defendants use it as an underlying defense to typically one of three recognized defenses: self-defense, provocation, or diminished capacity/insanity.[31]  By allowing a defendant to receive any benefit of the doubt for violence he perpetrates against another based solely on the victim’s LGBT status, or perceived status, is to play upon the implicit bias of some jurors and exacerbate the implication that LGBT persons do not matter.

Current and Pending Bans

States must act to proactively put an end to the use of gay panic defenses because of its detrimental impact to the proper function of the criminal justice system.  California, Illinois, and Rhode Island have each succeeded in passing legislation to that effect and are leading the nation on this front.

California

In 2014, California became the first state to ban the gay panic defense from being used in criminal proceedings, stating in relevant part:

For purposes of determining sudden quarrel or heat of passion . . . the provocation was not objectively reasonable if it resulted from the discovery of, knowledge about, or potential disclosure of the victim’s actual or perceived gender, gender identity, gender expression, or sexual orientation, including under circumstances in which the victim made an unwanted nonforcible romantic or sexual advance towards the defendant, or if the defendant and victim dated or had a romantic or sexual relationship.[32]

The bill limits a defendant’s ability to assert provocation as a defense for murder in reaction to a romantic interaction or attempt by a member of the same sex under the laws of the state. It is similar to the way state and federal laws protect rape victims in criminal trials through rape shield laws that limit a defendant’s ability to defend himself through probing into the victim’s sexual history.

Illinois

Illinois followed, introducing two new provisions which limit the use of the defense:

Provided, however, that an action that does not otherwise mitigate first degree murder cannot qualify as a mitigating factor for first degree murder because of the discovery, knowledge, or disclosure of the victim’s sexual orientation. . . .[33]

Serious provocation is conduct sufficient to excite an intense passion in a reasonable person provided, however, that an action that does not otherwise constitute serious provocation cannot qualify as serious provocation because of the discovery, knowledge, or disclosure of the victim’s sexual orientation. . . .[34]

Illinois’ statute essentially states that the discovery of a victim’s sexual orientation or gender identity may not suffice for an assertion of the provocation defense, and more broadly that any attempt to mitigate the crime of murder will fail if based solely upon a similar discovery.

Rhode Island

Rhode Island’s statute is arguably the most encompassing law of the three states that have banned the gay panic defense.  Rhode Island’s statute bans the use of the “unrecognized” defense under the three official defenses through which it is typically brought: provocation, self-defense and diminished capacity.

[P]rovocation was not objectively reasonable if it resulted from the discovery of, knowledge about, or potential disclosure of the victim’s actual or perceived gender, gender identity, gender expression, or sexual orientation . . . a defendant does not suffer from reduced mental capacity based solely on the discovery or, knowledge about, or potential disclosure of the victim’s actual or perceived gender, gender identity, gender expression, or sexual orientation . . . A person is not justified in using force against another based solely on the discovery of, knowledge about, or potential disclosure of the victim’s actual or perceived gender, gender identity, gender expression, or sexual orientation. . . .[35]

Along with California, Illinois, and Rhode Island, similar legislation to ban the use of gay panic defenses is pending in New Jersey, Washington, and the District of Columbia.[36]  At the federal level, a bill is pending that would prohibit such defenses in federal criminal cases.[37]  The federal bill in relevant part states that “no nonviolent sexual advance or perception or belief, even if inaccurate, of the gender, gender identity or expression, or sexual orientation of an individual may be used to excuse or justify the conduct of an individual or mitigate the severity of an offense.”[38]  While successfully passing this bill at the federal level will eliminate this defense tactic in federal courts, state courts would not be bound by the law, and each state legislature must codify their own individual bans.

Conclusion

The gay panic defense is an outdated defense technique that abuses unfortunate lingering bias against the LGBT community to reduce a defendant’s perceived culpability or absolve them entirely.  Alarmingly, the defense harms LGBT people in the very forum in which they, as victims, should be able to seek justice and protection.

Victims of violent crimes in these cases deserve justice, but rather they and their families are often re-victimized, as violent offenders receive reduced convictions and sentences.  Modern society has progressed to a point where it would be absurd to allow our justice system to be hindered by an obstacle based on apathy for the lives of gay and transgender citizens.  Gay panic defense bans should be universally implemented to protect LGBT victims in the same way that rape shield laws protect victims of sexual assault across the nation.  The gay panic defense is an affront to LGBT people in this country and a weakness within the criminal justice system that must be managed by states taking the initiative to protect all their citizens.

[1] Jackie Salo, Man Who Used ‘Gay Panic’ Defense for Killing Neighbor Avoids Prison, N.Y. Post (Apr. 27, 2018, 5:28 PM), https://nypost.com/2018/04/27/man-who-used-gay-panic-defense-for-killing-neighbor-avoids-prison/.

[2] Id.

[3] Cleve R. Wootson, Jr., A Former Police Employee Said He Killed a Man in ‘a Gay Panic’ – an Actual Legal Defense That Worked, Wash. Post (Apr. 27, 2018), https://www.washingtonpost.com/news/post-nation/wp/2018/04/27/a-former-cop-said-he-killed-a-man-in-a-gay-panic-an-actual-legal-defense-that-worked/?noredirect=on&utm_term=.5aafde75b8f6.

[4] Id.

[5] William Shepherd, Gay and Trans Panic Defenses Resolution, 2013 A.B.A. Resol. 113A, at 6, https://lgbtbar.org/wp-content/uploads/sites/6/2014/02/Gay-and-Trans-Panic-Defenses-Resolution.pdf.

[6] Gay and Trans Panic Defense, LGBT B., https://lgbtbar.org/what-we-do/programs/gay-and-trans-panic-defense (last visited Sept. 1, 2018).

[7] Edward J. Kempf, Psychopathology 477 (1920), https://archive.org/details/39002086348753.med.yale.edu.

[8] Jack Drescher, Out of DSM: Depathologizing Homosexuality, 5 Behav. Sci. 565 (2015), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC4695779.

[9] Jordan Blair Woods et al., Model Legislation for Eliminating the Gay and Trans Panic Defenses, Williams Inst., Sept. 2016, at 3, https://williamsinstitute.law.ucla.edu/wp-content/uploads/2016-Model-GayTransPanic-Ban-Laws-final.pdf.

[10] David Alan Perkiss, A New Strategy for Neutralizing the Gay Panic Defense at Trial: Lessons From the Lawrence King Case, 60 UCLA L. Rev. 778, 797 (2013).

[11] Id.

 

[12] Developments in the Law: Sexual Orientation and the Law, 102 Harv. L. Rev. 1508, 1548 n.187 (1989).

[13] 64 Cal. Rptr. 253 (Ct. App. 1967).

[14] Id. at 256.

[15] Id. at 253.

[16] Id. at 256.

[17] Id. at 255.

[18] Rodriguez, 64 Cal. Rptr. at 255.

[19] Id. at 254.

[20] Richard Weinmeyer, The Decriminalization of Sodomy in the United States, 16 AMA J. Ethics 916, 916-17 (2014).

[21] 478 U.S. 186 (1986).

[22] Id. at 188.

[23] Id.

[24] 539 U.S. 558 (2003).

[25] Id. at 578.

[26] Id.

[27] 135 S. Ct. 2584 (2015).

[28] Id. at 2605.

[29] Jaime M. Grant et al., Injustice At Every Turn: A Report of the National Transgender Discrimination Survey, Nat’l Ctr. Transgender Equality, 2011, at 2, https://endtransdiscrimination.org/PDFs/NTDS_Report.pdf.

[30] Woods et al., supra note 9, at 2.

[31] Shepherd, supra note 5.

[32] Assemb. 2501, 2013 Leg., Reg. Sess. (Cal. 2014).

[33] S. 1761, 100th Gen. Assemb., Reg. Sess. (Ill. 2017).

[34] Id.

[35] H.R. 7066, 2017 Leg. Sess. (R.I. 2018).

[36] LGBT B., supra note 6.

[37] Gay and Trans Panic Defense Prohibition Act of 2018, H.R. 6358, 115th Cong. (2018).

[38] Id. § 3.

Conditional Spending: Enabling States to Prevent Mass Shootings

By Zachary Segal, J.D Candidate, Junior Editor, Touro Law Review

In the wake of the Marjory Stoneham Douglas High School massacre in Parkland, Florida, students[1], State governments,[2] retailers,[3] and even the President[4], are calling on Congress to enact stricter firearm regulation, increased mental health screening, and added security for schools. These calls are a bi-product of the growing frustration that mass shootings, caused by gun violence and unregulated access to firearms by mentally ill individuals, is sweeping the nation by storm.[5] Congress, however, has rebuked these calls arguing the matter should be dealt with locally[6] while others argue mental health, not guns, cause mass shootings.[7]

Considering Congressional efforts, following mass shootings, have been futile and there is disagreement as to the cause—maybe it is time for Congress to pass the torch to the States pursuant to its Article I power to “Lay and collect Taxes … for the common defense and general Welfare of the United States.”[8] This power includes the ability to incentivize States with funds conditioned on their enacting desired laws, regulations, or guidelines; this practice is called conditional spending.[9] Thus, one solution to the national mass-shooting crisis is to entice States with renewed funds for mental health funds conditioned on States passing, for example, “red flag” laws.[10] Last May, Rep. Carbajal (CA) introduced H.R. 2598, which conditions funds for red flag laws on State’s enacting them.[11]

Red flag laws, also known as extreme risk laws, allow a judge to confiscate firearms belonging to an individual who, upon a finding of probable cause, poses an extreme risk to himself or others.[12] In Connecticut, for example, a report is issued to the police regarding an individual who is deemed to pose an imminent risk to himself or others.[13] The police, then, conduct an independent investigation and if there is probable cause, two officers must swear the individual poses an imminent risk.[14] The affidavit is submitted to the local State Attorney who decides whether to request a warrant.[15] If the State Attorney so decides, the warrant request is presented to a Superior Court Judge who determines whether there is in fact probable cause to seize the firearms.[16] If the Judge finds probable cause, the warrant is issued and the police may search for, and seize any firearms or ammunition located at the individual’s residence.[17] Finally, following a fourteen day cooling off period, the State must prove by clear and convincing evidence the individual whose guns were seized presents a continued imminent risk to himself or others.[18] If the State carries its burden, the individual loses the firearms for a year and cannot purchase new ones.[19]

Presently, five states have red flag laws, nineteen had legislation pending prior to Parkland, and five have introduced legislation following the mass shooting in Parkland, Florida.[20] This proposal, like H.R. 2598, in effect, removes the federal government from the equation by placing the impetus on the States to accept, or reject, the funds thereby making States politically accountable to their constituents. Given the recent cuts in FY 2018’s budget for mental health,[21] Congress need not incentivize the States with funding by restricting current funds. Rather, H.R. 2598, or a new bill, should renew mental health funds through the prescribed method detailed below.

The 1987 Supreme Court case, South Dakota v. Dole,[22] articulated four limitations Congress must satisfy before States can accept the conditional funds: (1) the spending must be for the general welfare; (2) the condition must be clear and unambiguous; (3) condition has to be reasonably related to the purpose of the expenditure; and (4) the condition is not barred another constitutional provision.[23] In Dole, the Court held States were eligible to accept extra highway funding because Congress’s condition of raising the drinking age to receive the funds were reasonably related to reducing drunk driving accidents.[24] The harbinger, however, to this conditional spending initiative involved whether it violated the Twenty-first Amendment.[25]

In Dole, the Court held because Congress was conditioning funds to address a dangerous situation—highway accidents caused by differing state drinking ages—it was spending for the general welfare.[26] The Court noted, moreover, it generally defers to Congress regarding its explanation behind why the conditioned funds are for the general welfare.[27]  Here, Congress would be conditioning funds to address a similar dangerous situation—mass shootings caused by easy access to firearms by the mentally ill.[28] The second limitation of Dole, likely will not pose a problem to Congress so long as the Congressional act “clearly and unambiguously” informs States it will receive funds for mental health and school safety conditioned on their enacting red flag laws.[29] The third limitation, too likely will be satisfied because the conditions on federal funds are related to a national concern i.e. ending mass shootings.[30]

The fourth limitation, however, presents the looming question as to whether the suggested conditional spending plan violates another Constitutional provision—the Second Amendment. In Dole, the Court rejected petitioner’s argument that the Twenty-first amendment barred Congress from spending and regulating an activity already prohibited, alcohol.[31] The Court held “the constitutional limitations on Congress when exercising its spending power are less exacting than those on its authority to regulate directly.”[32] As a corollary, the Court explained the Tenth Amendment was not being violated because Congress was not offering funds “to induce the States to engage in activities that would themselves be unconstitutional.” In other words, unduly coercive incentives are unconstitutional.

While satisfying this prong may appear troublesome, it is not thanks to District of Columbia v. Heller.[37] Heller declared unconstitutional a D.C. statute prohibiting handgun possession in the home for self-defense.[38]Although Heller declared the Second Amendment creates an individual right to bear arms for self-defense in the home,  it maintained the right is not absolute.[39] Specifically, the Second Amendment does not protect the right of citizens to carry arms for any sort of confrontation or limit “longstanding prohibitions on the possession of firearms by … the mentally ill, or laws forbidding the carrying of firearms in sensitive places such as school and government buildings, or laws imposing conditions and qualifications on the commercial sale of arms.”[40] Two years later, the Court, in McDonald v. City of Chicago[41] held the right protected in Heller is incorporated against the States through the Fourteenth Amendment.[42] In other words, neither the federal government, nor state governments can infringe upon the right to bear arms for self-defense in the home, but can regulate arms consistent with the dicta in Heller.[43]

Red flag laws, despite criticism that they violate the Second Amendment, have been upheld in California,[44] Connecticut,[45]and Indiana[46] courts. The courts uniformly relied on the dicta in Heller in upholding the constitutionality of the State’s red flag law.[47] Moreover, contrary to Republican concerns regarding Due Process,[48] the aforementioned State courts found no Due Process issues with the red flag laws.[49]

Following the mass shooting in Parkland, eighteen states, including the District of Columbia, have introduced red flag laws to address the mass-shooting crisis.[50] Conversely, some States are making access to firearms easier to provide citizens with the chance to defend them against a shooter.[51] While the means adopted by the States may differ, the end is uniform among them—ending massing shootings. Proposals, like increased background checks[52] and arming teachers[53] likely will not address the mutually agreed upon cause of mass shootings, mental health.

However, at least one study on the impact of Connecticut’s red flag law on firearm related suicides, suggests such laws decrease these types of suicides.[54] Moreover, considering in most of the recent mass shootings authorities were warned the shooter might inflict harm on himself or others[55], red flag laws will give law enforcement the opportunity to proactively act on these concerns.[56]

Conditioning mental health funds on State’s enacting red flag laws is both sensible and Constitutional. H.R. 2598 provides Congress with an opportunity to act without imposing its federal power on individual States. Considering H.R. 2598 was proposed prior to Parkland, perhaps Congress should condition renewed mental health funds in conjunction with funds for the red flag laws. Should the States reject the funds, however, Congress still made the effort and the States, not Congress, will be accountable to its citizens. In conclusion, considering Congress is unable, or unwilling, to pass federal legislation, it should enable the States to do so with something more practical than offering “thoughts and prayers.”

 

 

 

 

 

[1] Ryan Grenoble, School Walkouts Go Nationwide As Students Push For Gun Control, Huffington Post, February 21, 2018, https://www.huffingtonpost.com/entry/school-walkout-gun-control-protest_us_5a8d9afae4b00a30a251a02d (last visited Feb 27, 2018).

[2]Katharine Q. Seelye & Jess Bidgood, What Are States Doing About Gun Violence After the Florida Shooting?, New York Times, February 26, 2018, https://www.nytimes.com/2018/02/26/us/gun-control-laws.html (last visited Feb 27, 2018). (“It is not just in Florida where the mass shooting at a high school is prompting lawmakers to take up gun control legislation. The same thing is happening across the country, from Washington to Vermont.”); See also Ella Nilsen, 5 Republican and Democratic governors on what states can do on gun control, Vox, February 26, 2018, https://www.vox.com/policy-and-politics/2018/2/26/17049442/republican-democratic-governors-states-gun-control (last visited Feb 27, 2018).

[3] Julie Creswell & Michael Corkery, Walmart and Dick’s Raise Minimum Age for Gun Buyers to 21, New York Times, February 28, 2018, https://www.nytimes.com/2018/02/28/business/dicks-major-gun-retailer-will-stop-selling-assault-style-rifles.html (last visited Feb 28, 2018). (Walmart announced it would no long sell guns or ammunition to people under twenty-one years old. Dick’s Sporting Goods also raised the age for selling guns or ammunition to 21 as well as discontinuing the sale of assault style rifles.)

[4] Jeremy Diamond & Dan Merica, Trump voices support for certain gun control measures, CNN, February 28, 2018, https://www.cnn.com/2018/02/28/politics/gun-laws-donald-trump-congress/index.html (last visited Feb 28, 2018); Ayesha Rascoe & Roberta Rampton, Trump pushes Congress for broad bill on guns after school shooting, Reuters, February 28, 2018, https://www.reuters.com/article/us-usa-guns-trump/trump-pushes-congress-for-broad-bill-on-guns-after-school-shooting-idUSKCN1GC2M0 (last visited Feb 28, 2018).

[5]  See generally supra note 1-4.

[6] Susan Cornwell & Richard Cowan, U.S. congressional Republicans reject new limits on guns, Reuters, February 27, 2018, https://www.reuters.com/article/us-usa-guns/u-s-congressional-republicans-reject-new-limits-on-guns-idUSKCN1GB0K8 (last visited Feb 28, 2018) (House Speaker Paul Ryan, regarding arming teachers, was that “Local governments, not Congress, should decide whether to arm teachers.”

[7] Kimberly Leonard, Alex Azar says HHS will be ‘laser focused’ on mental health following shooting, Washington Examiner, February 15, 2018, http://www.washingtonexaminer.com/alex-azar-says-hhs-will-be-laser-focused-on-mental-health-following-shooting/article/2649260 (last visited Feb 27, 2018); Jonathan M. Metzl & Kenneth T. MacLeish, Mental Illness, Mass Shootings, and the Politics of American Firearms, 105 American Journal of Public Healthy240–249 (2015), https://www.ncbi.nlm.nih.gov/pmc/articles/PMC4318286/ (last visited Feb 27, 2018). (““Four assumptions frequently arise in the aftermath of mass shootings in the United States: (1) that mental illness causes gun violence, (2) that psychiatric diagnosis can predict gun crime, (3) that shootings represent the deranged acts of mentally ill loners, and (4) that gun control “won’t prevent” another Newtown (Connecticut school mass shooting).””).

 

[8] U.S. Const. art. I, § 8, cl. 1 (“The Congress shall have Power To lay and collect Taxes, Duties, Imposts and Excises, to pay the Debts and provide for the common Defence and general Welfare of the United States; but all Duties, Imposts and Excises shall be uniform throughout the United States;”

[9] See infra note 22.

[10] See Gun Violence Restraining Order Act of 2017, H.R. 2598, 115th Cong. (2017); See also Red Flag Laws: Helping Prevent Mass Shootings, EverytownResearch.org (2018), https://everytownresearch.org/red-flag-laws-helping-prevent-mass-shooting/#foot_note_2 (last visited Feb 28, 2018).

[11] Id.

[12] Id.; See also Cal. Penal Code § 18125; Cal. Penal Code § 18150; Cal. Penal Code § 18175; Conn. Gen. Stat. § 29-38c; Ind. Code § 35-47-14-1; Ind. Code § 35-47-14-2; Ind. Code § 35-47-14-5; Ind. Code § 35-47-14-6; Ind. Code § 35-47-14-8; Oregon S. 719, 79th Leg., Reg. Sess. (Or. 2017)(not yet codified); Wash. Rev. Code § 7.94.030; Wash. Rev. Code § 7.94.040; Wash. Rev. Code § 7.94.050; Wash. Rev. Code § 7.94.080.

[13] Jeffrey W. Swanson, Michael A. Norko, Hsiu-Ju Lin, Kelly Alanis-Hirsch, Linda K. Frisman, Madelon V. Baranoski, Michele M. Easter, Allison G. Robertson, Marvin S. Swartz & Richard J. Bonnie, Implementation and Effectiveness of Connecticut’s Risk-Based Gun Removal Law: Does it Prevent Suicides?, 80 Law and Contemporary Problems 179-208, 187 (2017),
https://scholarship.law.duke.edu/lcp/vol80/iss2/8  (last visited Feb 28, 2018);

[14] Id. (citing Conn. Gen. Stat. Ann. § 29-38c) (“The police take the report and must conduct an independent investigation to gather facts that might support a determination of “probable cause to believe that (1) a person poses a risk of imminent personal injury to himself or herself or to other individuals, (2) such person possesses one or more firearms, and (3) such firearm or firearms are within or upon any place, thing or person . . . .”); See also Cal. Penal Code § 18150(b)(1) (same); Ind. Code § 35-47-14-1 (same); Wash. Rev. Code § 7.94.030(3)(a) (same).

[15] Id.

[16] Id. (“In determining whether grounds for the application exist or whether there is probable cause to believe they exist, the judge shall consider: (1) Recent threats or acts of violence by such person directed toward other persons; (2) recent threats or acts of violence by such person directed toward himself or herself; and (3) recent acts of cruelty to animals as provided in subsection (b) of section 53-247 by such person. In evaluating whether such recent threats or acts of violence constitute probable cause to believe that such person poses a risk of imminent personal injury to himself or herself or to others, the judge may consider other factors including, but not limited to (A) the reckless use, display or brandishing of a firearm by such person, (B) a history of the use, attempted use or threatened use of physical force by such person against other persons, (C) prior involuntary confinement of such person in a hospital for persons with psychiatric disabilities, and (D) the illegal use of controlled substances or abuse of alcohol by such person.”); See also Cal. Penal Code § 18155 (same);

[17] Id.; See also Cal. Penal Code § 18160 (21 day cooling off period); Ind. Code § 35-47-14-5 (14 day cooling off period); Wash. Rev. Code § 7.94.050(5) (same).

[18] Id.

[19] Id.; See also Cal. Penal Code § 18175 (firearms are held by court for one year); Ind. Code § 35-47-14-6 (firearms are held by court until court determines individual can resume possession.); Wash. Rev. Code § 7.94.080(1) (firearms are held by court for one year at which point petitioner can request a new hearing).

[20] Jason Hanna & Laura Ly, After the Parkland massacre, more states consider ‘red flag’ gun bills CNN (2018), https://www.cnn.com/2018/03/07/us/gun-extreme-risk-protection-orders/index.html (last visited Mar 7, 2018).

[21]See HHS Office of the Secretary & Office of Budget (OB), FY 2018 Budget in Brief – SAMHSAHHS.gov(2017), https://www.hhs.gov/about/budget/fy2018/budget-in-brief/samhsa/index.html (last visited Mar 7, 2018) ($252,000,000 cut from mental health).

[22] 483 U.S. 203 (1987).

[23] Id. at 207-08.

[24] Id. at 211-12. (“Here Congress has offered relatively mild encouragement to the States to enact higher minimum drinking ages than they would otherwise choose. But the enactment of such laws remains the prerogative of the States not merely in theory but in fact. Even if Congress might lack the power to impose a national minimum drinking age directly, we conclude that encouragement to state action found in § 158 is a valid use of the spending power.”)

[25] Id. at 209.

[26] Id. at 208.

[27]  483 U.S. 203, 207 (1987) (“The first of these limitations is derived from the language of the Constitution itself: the exercise of the spending power must be in pursuit of “the general welfare.”).

[28] See supra note 14, at 184 (“Moreover, individuals at high risk of violence commonly have access to firearms at home even if they would not qualify to buy a gun themselves, because they live in households with guns legally purchased by family members or others.”).

[29] Id. at 208 (“Second, we have required that if Congress desires to condition the States’ receipt of federal funds, it “must do so unambiguously …, enabl[ing] the States to exercise their choice knowingly, cognizant of the consequences of their participation.”); See also supra note. 10 (H.R. 2598: “In order to receive a grant under section 4, on the date that is 3 years after the date of enactment of this Act, each State shall have in effect legislation that—(1) authorizes a gun violence prevention order and gun violence prevention warrant in accordance with subsection (b); and (2) requires each law enforcement agency of the State to comply with subsection (c).”).

[30] Id. at 208-09 (“Indeed, the condition imposed by Congress is directly related to one of the main purposes for which highway funds are expended—safe interstate travel. This goal of the interstate highway system had been frustrated by varying drinking ages among the States. … By enacting § 158, Congress conditioned the receipt of federal funds in a way reasonably calculated to address this particular impediment to a purpose for which the funds are expended.”).

[31] Id. at 209.

[32] Id.

[33] Id. at 210; See U.S. Const. amend. X (“The powers not delegated to the United States by the Constitution, nor prohibited by it to the States, are reserved to the States respectively, or to the people.”); See also Printz v. United States, 521 U.S. 898, 935 (1997) (“We held in New York that Congress cannot compel the States to enact or enforce a federal regulatory program. Today we hold that Congress cannot circumvent that prohibition by conscripting the State’s officers directly. The Federal Government may neither issue directives requiring the States to address particular problems, nor command the States’ officers, or those of their political subdivisions, to administer or enforce a federal regulatory program.”).

[34] 567 U.S. 519, 581 (2012).

[35] Id. (“[T]he financial “inducement” Congress has chosen is  more than “relatively mild encouragement”—it is a gun to the head.”)

[36] Id.

[37] 554 U.S. 570 (2008).

[38] Id.

[39] Id. at 595.

[40] Id. at 687.

[41] 561 U.S. 742 (2010).

[42] Id. at 790.

[43] Id. at 782 (“We made it clear in Heller that our holding did not cast doubt on such longstanding regulatory measures as “prohibitions on the possession of firearms by felons and the mentally ill,” “laws forbidding the carrying of firearms in sensitive places such as schools and government buildings, or laws imposing conditions and qualifications on the commercial sale of arms.”  We repeat those assurances here.” (citations omitted)).

 

[44] City of San Diego v. Boggess, 216 Cal. App. 4th 1494, 1497 (2013) (“[B]oth Heller and McDonald identified an expressly nonexclusive list of traditional limitations on the right to bear arms, characterizing them as “presumptively lawful regulatory measures….” Section 8102, which prohibits a person detained under section 5150 from recovering their seized firearms upon proof by the seizing agency that returning the weapon would be likely to result in endangering that person or others, is such a regulatory measure. We reject that in Heller and McDonald the U.S. Supreme Court categorically invalidated such laws, which are designed to keep firearms out of the hands of a dangerous person.”).

[45] Hope v. State, 133 A.3d 519, 524-25 (Conn. App. Ct. 2016) (“Section 29-38c does not implicate the second amendment, as it does not restrict the right of law-abiding, responsible citizens to use arms in defense of their homes. It restricts for up to one year the rights of only those whom a court has adjudged to pose a risk of imminent physical harm to themselves or others after affording due process protection to challenge the seizure of the firearms. The statute is an example of the longstanding ‘presumptively lawful regulatory measures’ articulated in District of Columbia v. Heller. . . . We thus conclude that § 29-38c does not violate the second amendment.”).

[46] Redington v. State, 992 N.E.2d 823, 846 (Ind. Ct. App. 2013) (“[T]he United States Supreme Court has recently and repeatedly recognized the legitimate governmental purpose of prohibiting the mentally ill from possessing firearms. See McDonald v. City of Chicago, Ill., 561 U.S. 742 (2010)District of Columbia v. Heller, 554 U.S. 570, 626–27 (2008). The purpose of the Act is to provide a mechanism for the State to seize and retain firearms from persons it deems “dangerous,” which as Section 1 describes above, are persons who, due to mental instability, present risk of personal injury to themselves or others, be it imminent or in the future. Accordingly, and giving deference to the legislative decision, we conclude that the Act is rationally calculated to advance this legitimate governmental interest.”).

[47] Id.; See also supra note 43, 44.

[48] Lindsey McPherson, Democrats Push Bill They Say Could Have Prevented Parkland Shooting, Roll Call, February 16, 2018, https://www.rollcall.com/news/politics/democrats-push-bill-say-prevented-parkland-shooting (last visited Mar 7, 2018).

[49] Hope, 133 A.3d at 524.; Boggess, 216 Cal. App. 4th at 1503; Reddington, 992 N.E.2d at 848.

[50] See generally supra note 10, 12.

[51] See supra note 2 (Kansas introduced legislation to lower the age for concealed carry from 21 to 18 and allowing permits to carry on college campuses; South Dakota passed a law allowing people to carry guns at school and churches.).

[52] See supra note 13, at 183 (citing Jeffrey W. Swanson, Michele M. Easter, Allison G. Robertson, Marvin S. Swartz, Kelly Alanis-Hirsch, Daniel Mosely, Charles Dion & John Petrila, Gun Violence, Mental Illness, and Laws that Prohibit Gun Possession: Evidence from Two Florida Counties, 35 HEALTH AFF. 1067, 1067–75 (2016) (“Similarly, a substantial proportion of those at risk for committing violent crimes with guns do not have a record that would prohibit them from purchasing or possessing firearms.”).

[53] Michael Hansen, There are ways to make schools safer and teachers stronger-but they don’t involve guns Brookings (2018), https://www.brookings.edu/blog/brown-center-chalkboard/2018/02/27/there-are-ways-to-make-schools-safer-and-teachers-stronger-but-they-dont-involve-guns/ (last visited Mar 7, 2018).

[54] Supra  note 13, at 208.

[55] Andrew Gumbel, Mass shootings: why do authorities keep missing the warning signs? The Guardian (2018), https://www.theguardian.com/us-news/2018/mar/06/mass-shootings-fbi-law-enforcement-prevention (last visited Mar 7, 2018) (“In almost every case, behaviors were observed and caused concern, whether in the physical world or in cyberspace through emails and social media activity, and in many cases these were reported to law enforcement,” said John Cohen, a former senior counter-terrorism coordinator with the Department of Homeland Security who now conducts training on spotting potential mass killers.”)

[56] See supra note 13, at 185 (“Rather, in order to effectively deter and prevent people like Hicks [Chapel Hill, NC shooter who killed three Muslim students] from using guns in a harmful way, a different kind of law would have been needed: a legal tool to effectively remove guns from a dangerous person who already possesses them, that is, a preemptive, risk-based gun seizure law that would apply to dangerous-but-not-otherwise-gun-prohibited persons.”)

 

Constitutional Rights Pushed Aside with a Guilty Plea?

By Molly Moloney, J.D. Class of 2018 Touro Law Review Associate Editor

On May 30, 2013, Rodney Class parked outside of the U.S. Botanic Garden in Washington D.C., just 1000 feet from the capitol building.[1] U.S. Capitol Police approached his vehicle, looked in the cab, and saw what they believed to be firearms.[2] This led to a search of Class’s car, where 256 rounds of ammunition were found[3] along with three loaded firearms: a Taurus .44 caliber pistol, a Ruger LC9 9mm pistol, and a Henry Arms .44 caliber rifle.[4] Class was subsequently indicted for violating 40 U.S.C. § 5104(e) (“unlawful possession of a firearm on capitol grounds or buildings”)[5] and 22 D.C. Code § 4504(a) (carrying a pistol [outside home or place of business]”).[6]

After his indictment, Class filed several motions to dismiss, arguing, among other things, that the Second Amendment protected his storage of the weapons found in his car.[7] By October 2014, the District Court denied Class’s motions and concluded that the “government-owned parking lot was the same as a ‘government building’ where all weapons could presumptively be banned” and denied his claim that his Second Amendment rights had been violated.[8]

Less than one month after the denial of his motions, Class accepted a plea offer from the Office of The United States Attorney for the District of Columbia and pled guilty to violating 40 U.S.C. § 5104(e).[9] He signed an agreement stating that by accepting the plea offer he was waiving “certain rights afforded by the Constitution of the United States . . . the right to plead not guilty, and the right to a jury trial.”[10] In addition, Class waived his “right to appeal the sentence in this case . . . except . . . the right to appeal [an] illegal sentence,” and waived “any right to challenge the conviction entered or sentence imposed . . .”[11] Class, under pro se representation, signed the agreement on November 16, 2014, with an acknowledgment by attorney A.J. Kramer, his standby counsel.[12] Nonetheless, Class appealed to the Court of Appeals for the D.C. Circuit.[13]

On appeal, Class argued that 42 U.S.C. § 5104(e) violated his Second Amendment right to bear arms in that it “effectively ban[s] law-abiding citizens from securely storing lawfully owned weapons in their cars parked in a publicly accessible lot.”[14] The government argued in response that his right to raise any constitutional claims were inherently waived when he pleaded guilty.[15] The court ultimately sided with the government and refused to address the merits of Class’s constitutional claims.[16] Despite the holding of the D.C. Circuit, Class filed a petition for writ of certiorari to the Supreme Court on September 30, 2016.[17] The Supreme Court granted the petition for writ of certiorari on February 21, 2017, and is on schedule to address the issue that has created a split in the circuit courts: whether constitutional challenges to a statute of conviction are inherently waived when a criminal defendant pleads guilty.[18]

As it stands, the D.C., First, and Tenth Circuits do not allow constitutional challenges to a criminal statute after a guilty plea, while the Third, Sixth, Seventh, Eighth, Ninth and Eleventh Circuits allow such claims.[19] The Seventh and Eighth Circuits make their determinations on a facial and as-applied basis.[20] This circuit split on whether to permit a constitutional challenge after a guilty plea has arisen, in part, because of two inconsistent Supreme Court decisions: Blackledge v. Perry[21] and Menna v. New York.[22] In Blackledge, the Supreme Court held that “when a criminal defendant enters a guilty plea, he may not thereafter raise independent claims relating to the deprivation of constitutional rights that occurred prior to the entry of the guilty plea.”[23] However, one year later in Menna, the Court held that “[a] guilty plea . . . simply renders irrelevant those constitutional violations not logically inconsistent with the valid establishment of factual guilt and which do not stand in the way of conviction if factual guilt is established.”[24] This ambiguity in Supreme Court decisions has likely contributed to the confusion and split in the circuit courts’ interpretation and application.

In October 2017, the Supreme Court will rule on this challenging issue and determine Rodney Class’s fate in regards to his constitutional claims.[25] Not only will this affect Class, but it will affect the rights of any other criminal defendant who pleads guilty in future litigation. With time and the reasoned judgment of the Supreme Court, nine justices will decide whether criminal defendants will be provided an avenue of relief for constitutional violations after a plea of guilty.

[1] Petition for Writ of Certiorari at 5, Class v. U.S., 2016 WL 5765174 (Sept. 30, 2016) (No. 16-424).

[2] Petition for Writ of Cert., supra, note 1.

[3] John Elwood, Relist Watch, SCOTUSblog (Jan. 27, 2017 3:52 PM), http://www.scotusblog.com/2017/01/relist-watch-97/.

[4] Indictment, U.S. v. Class, 2013 WL 9601401 (Oct. 23, 2014) (No. 1:13-cr-00253-RWR).

[5] 40 U.S.C. § 5104(e) (2002).

[6] 22 D.C. Code § 22-4504(a) (2012).

[7] Petition for Writ of Cert., supra note 1, at 6-8.

[8] Petition for Writ of Cert., supra note 1, at 7-8.

[9] Class Plea Agreement, U.S. v. Class, No.: 1:13-cr-00253-RWR (D.D.C. Oct. 23, 2014) ECF No. 169.

[10] Class Plea Agreement, supra note 9, at 5-6.

[11] Class Plea Agreement, supra note 9, at 6.

[12] Class Plea Agreement, supra note 9, at 10. Stand by counsel is an attorney who is appointed to assist a defendant when he or she decides to proceed pro se. Standby counsel, Black’s Law Dictionary (10th ed. 2014).

[13] Petition for Writ of Cert., supra note 1, at 9.

[14] Petition for Writ of Cert., supra note 1, at 9.

[15] Petition for Writ of Cert., supra note 1, at 10.

[16] Petition for Writ of Cert., supra note 1, at 10.

[17] Petition for Writ of Cert., supra note 1.

[18] Petition for Writ of Cert., supra note 1, at 12-13.

[19] Reply Brief for Petitioner at 1-2, Class v. U.S., 2016 WL 34881 (U.S. Jan. 3, 2017) (No. 16-424).

[20] Brief for Petitioner, supra note 19, at 2.

[21] 417 U.S. 21 (1974)

[22] 43 U.S. 61 (1975).

[23] Blackeldge, 417 U.S. at 29-30.

[24] Menna, 43 U.S. at 62, fn. 2.

[25] Supreme Court of the United States, SCOTUSblog, http://www.scotusblog.com/case-files/cases/class-v-united-states/. (last visited April 4, 2017).

 

Packingham v. North Carolina: Reducing Recidivism One Social Media Post at a Time

 

By Jenna Jonassen, J.D. Class of 2018 Touro Law Review Associate Editor

Lester Gerard Packingham was convicted under North Carolina state law for something that most people do every single day—posting to his Facebook account. On April 27, 2010, Packingham posted on his Facebook page proclaiming his excitement over the dismissal of a recent traffic violation.[1] He posted: “God is good! How about I got so much favor they dismissed the ticket before court even started? No fine, no court costs, no nothing spent . . . Praise be to GOD, WOW! Thanks JESUS!”[2] While this seemingly innocent post does not appear out of the ordinary for most, the fact that Packingham was a registered sex offender in North Carolina at the time that the post was made subjected him to criminal liability.[3]

In 2002, Packingham was convicted of two counts of statutory rape of a thirteen-year-old child in Cabarrus County, North Carolina.[4] In exchange for a guilty plea, the state lowered Packingham’s charges to “taking indecent liberties with a child” and he was required to register as a sex offender with the state.[5] In accordance with the state’s previously enacted Sex Offender Registration Program and recognizing the potential risk for recidivism of certain classes of sex offenders after they are released from incarceration,[6] the North Carolina legislature enacted § 14-202.5 of the North Carolina General Statutes[7] in 2008, which banned registered sex offenders from utilizing social networking websites in which minor members are able to enroll.[8] When a member of the North Carolina Police Department found Packingham’s Facebook page, listed under an alias but confirmed to be Packingham by his profile picture, and discovered his recent post, the officer obtained a search warrant for Packingham’s residence.[9] The search resulted in the officer’s seizure of evidence that implicated Packingham as the Facebook account holder, as well as, ironically, a signed copy of changes to the North Carolina sex offender laws that were sent to Packingham by the state.[10] Given Packingham’s sex offender status and his use of Facebook.com, the state brought charges against Packingham in September 2010 for violation of § 14-202.5.[11]

In order for a violation to occur under § 14-202.5, classified as a Class I felony,[12] the state is required to prove that the registered offender knew that the site allowed minor users to register,[13] that the offense was committed within the state,[14] and that the site used meets all of the following criteria:

1. Is operated by a person who derives revenue from membership fees, advertising, or other sources related to the operation of the Website.

2. Facilitates the social introduction between two or more persons for the purposes of friendship, meeting other persons, or information exchanges.

3. Allows users to create Web pages or personal profiles that contain information such as the name or nickname of the user, photographs placed on the personal Web page by the user, other personal information about the user, and links to other personal Web pages on the commercial social networking Web site of friends or associates of the user that may be accessed by other users or visitors to the Website.

4. Provides users or visitors to the commercial social networking Web site mechanisms to communicate with other users, such as a message board, chat room, electronic mail, or instant messenger.[15]

Sites devoted specifically to commercial transactions, or those with limited capabilities, such as photo-sharing, electronic mail, or instant messenger, for example, are specifically excluded from the statute’s reach.[16]

At a pre-trial hearing, Packingham moved to dismiss the charges against him on the grounds that § 14-202.5 violated his constitutional rights to free speech and association[17] as guaranteed under both the First Amendment to the United States Constitution[18] and Article I, § 14 of the North Carolina State Constitution.[19] The North Carolina Superior Court of Dunham County denied Packingham’s motion to dismiss and found that the statute was constitutional as applied to Packingham; however, due to jurisdictional issues, the court failed to determine whether the statute was constitutional on its face.[20] As a result, Packingham’s case went to trial and he was found guilty of accessing commercial social networking sites in violation of § 14-202.5 and sentenced to six to eight months imprisonment with twelve months of supervised probation.[21]

On appeal to the Court of Appeals of North Carolina, Packingham alleged that § 14-202.5 was unconstitutional due to its overbreadth, vagueness, and failure to be narrowly tailored to a legitimate government interest.[22] In finding that the statute was content-neutral,[23] the North Carolina Court of Appeals determined that the statute must withstand intermediate scrutiny, which requires it to be “narrowly tailored to achieve a significant governmental interest” while still “leav[ing] open ample alternative channels for communication of the information.”[24] The court found that § 14-202.5 was not narrowly tailored because it treated all sex offenders equally, despite potential differences in offenses and the likelihood of recidivism—subclasses which the North Carolina legislature specifically intended to differentiate between when they enacted § 14-202.5.[25] Specifically, the court held that “the statute is not narrowly tailored because it fails to target those offenders who ‘pose a factually based risk to children through the use or threatened use of the banned sites or services’” and “burdens more people than necessary to achieve its purported goal.”[26]

Further, the court held that the statute was unconstitutionally vague because it “lacks clarity” and “certainly fails to give people of ordinary intelligence fair notice of what is prohibited.”[27] While offenders would understand that sites resembling Facebook and Myspace would be prohibited under this law, they might not be aware that the language of § 14-205.5 also prohibits visitation of sites like Google and Amazon.[28] Though seemingly innocent, these sites also generate revenue from advertising, allow for social interaction between people, and allow minors to create user profiles, qualifying them as prohibited under the statute even though these sites might not even necessarily be frequented by minors.[29] Having further issue with the language of § 14-202.5, the court indicated that the statute’s general prohibition on “access” to commercial networking sites would actually make it unlawful for sex offenders in North Carolina to even happen upon a prohibited site or log-in to social networking accounts that may have been established prior to being registered as a sex offender.[30]

However, upon the State’s request for review, the court reversed the judgment of the North Carolina Court of Appeals.[31] Relying on the United States Supreme Court’s decision in United States v. O’Brien,[32] the court applied a four-factor test to determine whether Section 14-202.5 was “sufficiently justified” under intermediate scrutiny.[33] Applying this test, the court found that the statute’s enactment was within the power of the North Carolina legislature and satisfied a significant governmental interest in keeping recidivism rates for registered sex offenders low.[34] While the court determined that Section 14-202.5 could have been drawn more narrowly, the court ultimately held that the statute was sufficiently narrow to further the governmental interest without more than incidental constitutional implications.[35]   For example, although many sites would fall within the ambit of those prohibited by the statute, the court determined that there were also enough sites that would not be prohibited by Section 14-202.5 that served virtually similar purposes.[36] Therefore, the court held that the statute is not unreasonable and is thus constitutional both facially and as applied.[37] The court stated that the government’s interest was entirely too important to “invalidate [this] statute on its face.”[38]

The Supreme Court of the United States granted certiorari of Packingham’s appeal on October 28, 2016, to consider whether the North Carolina statute under which Packingham was convicted is unconstitutional both facially and as applied.[39] Though the Supreme Court has yet to render a decision, oral arguments were made by both parties on February 27, 2017.[40] Analysis of these arguments revealed that the Justices had a difficult time accepting the implications that the North Carolina statute had on First Amendment freedoms.[41] Specifically, Justice Kagan noted that the implications of Section 14-202.5 would prohibit registered sex offenders from being able to access political information from Twitter, which was deemed to be a “crucially important channel of political communication.”[42] Justice Kagan further noted that sites like Facebook and Twitter have “become incredibly important parts” of social, religious, and political culture as they have been “embedded in our culture as ways to communicate and ways to exercise constitutional rights.”[43] Justice Ginsburg agreed that social networking sites make up a “very large part of the marketplace in ideas”[44] and Justice Alito even expressed similar concerns, indicating that “there are people who think life is not possible without Twitter and Facebook.”[45] However, the Supreme Court Justices were not shy in pointing out that they previously allowed the states to impose other restrictions on the fundamental rights of convicted criminals, and that restricting First Amendment rights for registered sex offenders would not be dissimilar.[46]

Though a decision by the United States Supreme Court is forthcoming, the Justices’ responses to the petitioner and the respondent’s oral arguments make it clear that technological innovations have become so ingrained in our culture that constitutional restrictions on our use of it would speak to the very essence of who we are. Though the Supreme Court has previously allowed the states to restrict the constitutional rights of convicted criminals, North Carolina law provides that sex offenders must remain registered with the state for even non-violent sexual offenses for 30 years from the initial date of registration.[47] This means that sex offenders would be subject to these significant social restrictions for the majority of their lives.[48] While the concern for recidivism for sexually-based offenses toward minors is, of course, a significant governmental and public concern, the question remains whether the government is at liberty to almost permanently restrict individuals from these publicly-accessible channels of information on which our generation relies without substantial constitutional implications.

[1] State v. Packingham, 777 S.E.2d 738, 749 (2015).

[2] Id.

[3] Id. at 742.

[4] Id.

[5] Brief for Respondent at 8, Packingham v. North Carolina, 137 S. Ct. 368 (2016) (No. 15-1194), http://www.scotusblog.com/wp-content/uploads/2016/07/15-1194-BIO.pdf.

[6] N.C. Gen. Stat. § 14-208.5 (referring generally to Chapter 14, Article 27a of the North Carolina General Statutes titled Sex Offender and Public Protection Registration Programs).

[7] N.C. Gen. Stat. § 14-202.5.

[8] Packingham, 777 S.E.2d at 742.

[9] Id.

[10] Brief for Respondent, supra note 5, at 9.

[11] Packingham, 777 S.E.2d at 742.

[12] N.C. Gen. Stat. § 14-202.5(e).

[13] N.C. Gen. Stat. § 14-202.5(a).

[14] N.C. Gen. Stat. § 14-202.5(d).

[15] N.C. Gen. Stat. § 14-202.5(b).

[16] N.C. Gen. Stat. § 14-202.5(c).

[17] State v. Packingham, 777 S.E.2d 738, 742 (2015).

[18] U.S. Const. amend. I.

[19] N.C. Const. art I, § 14.

[20] Packingham, 777 S.E.2d at 742.

[21] Id.

[22] State v. Packingham, 748 S.E.2d 146, 149 (N.C. App. 2013).

[23] The court determined that this statute was content-neutral because it restricted an individual’s access to certain social networking sites without commenting on the type of speech found on those sites. Id. at 150 (referring to State v. Petersilie, 334 N.C. 169, 183 (1993)). As a general rule, the court indicated that content-neutral regulations must be evaluated under intermediate scrutiny, while other types of regulations on free speech that are more content-specific are subject to a more exacting standard. Id.

[24] Id. at 150.

[25] Id. at 152.

[26] Packingham, 748 S.E.2d 146 at 152.

[27] Id. at 153.

[28] Id.

[29] Id.

[30] Id. at 153-54.

[31] State v. Packingham, 777 S.E.2d 738, 741 (2015).

[32] United States v. O’Brien, 391 U.S. 367 (1968).

[33] Packingham, 777 S.E.2d 738 at 746. The court identified the relevant factors of this test to be 1) whether the statute was in the constitutional power of the Government; 2) whether the statute furthered a substantial governmental interest; 3) whether that government interest was related to the suppression of free expression; and 4) whether the statute is narrowly tailored to further that governmental interest without implication on First Amendment guarantees being greater than required in order to further that interest. Id.

[34] Id.

[35] Id. at 744.

[36] Id. at 747.

[37] Id. at 748, 750.

[38] State v. Packingham, 777 S.E.2d 738, 751 (2015) (internal citations omitted).

[39] Supreme Court of the United States, SCOTUS blog, http://www.scotusblog.com/case-files/cases/packingham-v-north-carolina/ (last visited Mar. 22, 2017).

[40] Id.

[41] See Transcript of Oral Argument, Packingham v. North Carolina, 137 S. Ct. 368 (2016) (No. 15-1194), https://www.supremecourt.gov/oral_arguments/argument_transcripts/2016/15-1194_0861.pdf.

[42] Id. at 28.

[43] Id. at 32.

[44] Id. at 47.

[45] Id. at 54.

[46] Transcript of Oral Argument, supra note 40, at 4-5.

[47] State v. Packingham, 748 S.E.2d 146, 148 (N.C. App. 2013).

[48] Id.

Is it Time to Legalize Marijuana?

By Andrea Laterza, J.D. Class of 2018 Touro Law Review Associate Editor

Mass incarceration has become a disturbing issue in this country.[1] The United States is home to only five percent of the world’s population, yet houses twenty-five percent of the world’s prisoners.[2] “The War on Drugs” has been a direct cause of mass incarceration.[3] Someone is arrested for drug possession every twenty-five seconds, which amounts to 1.25 million drug-related arrests each year.[4] In 2015, there were 574,000 arrests made for marijuana possession whereas 505,681 arrests were made for violent crimes, such as rape and murder.[5] Thus, there were more people arrested for mere possession of marijuana than for heinous, violent crimes.[6]

In 1972, there were less than 350,000 people incarcerated; however, due to the War on Drugs, that number skyrocketed by approximately 500%, amounting to over 2,000,000 people incarcerated today.[7] Despite Nixon and subsequent presidents’ intentions, the War on Drugs has been a failure.[8] Its wrath left U.S. prisons overcrowded, filthy, and a huge expense for taxpayers.[9] If marijuana were to be legalized, the number of inmates would reduce significantly, thereby saving the government hundreds of millions of dollars.[10] Not only would the government save money, but it would also profit.[11] Colorado, one of the several states that has legalized marijuana for recreational use, generated approximately $70 million in tax revenue during the first fiscal year that cannabis was legally sold and taxed.[12]

Aside from the monetary incentive, there may be a constitutional reason to end the criminalization of marijuana.[13] Arguably, the right to use marijuana falls within the recognized rights of privacy and autonomy.[14] The Supreme Court has repeatedly held that the Constitution “create[s] zones of privacy,” which extend to the home and personal bodily choices.[15] The Court has found that the rights to choose abortion, to refuse medical treatment, to use contraception, and to engage in consensual sodomy all fall within the “penumbra” of privacy and autonomy rights.[16] Using marijuana is analogous to these recognized rights because it is also a private, bodily choice.[17] In fact, one state has already held that using marijuana falls within the privacy right of the Constitution.[18] The Supreme Court of Alaska emphasized the importance of privacy within one’s home and held that “possession of marijuana by adults at home for personal use is constitutionally protected.”[19] The court based its holding, in part, on scientific research demonstrating that marijuana is not at all harmful or dangerous to the user or anyone else; therefore, Alaska had no legitimate interest in its prohibition.[20]

Even if using marijuana is not a privacy right, it is arguably a fundamental liberty “deeply rooted in this Nation’s history and tradition.”[21] Marijuana can be traced all the way back to 2737 B.C..[22] The Chinese emperor began prescribing marijuana for ailments, such as gout, rheumatism, and malaria.[23] The drug’s popularity spread across the globe and was used to treat all kinds of pain from earaches to childbirth.[24] In the 1600’s, the plant made its way to the United States where it became a major cash crop.[25] Hemp was used for many purposes, such as medicine, construction, and paper products.[26] In fact, the Declaration of Independence, signed by the Founding Fathers themselves, was written on hemp.[27] Even George Washington and Thomas Jefferson grew hemp.[28] The plant only became illegal in the 1900’s after it was negatively associated with Mexican immigrants.[29] The government falsely vilified marijuana as a drug linked to crime and insanity.[30] The American Medical Association even opposed the government’s position on marijuana because doctors wished to prescribe the drug.[31] Marijuana is not dangerous; no one has ever died from it.[32] In fact, experts believe marijuana has significant health benefits, such as treating glaucoma, speeding up metabolism, controlling seizures, and preventing cancer.[33] Nevertheless, the drug has been unscientifically outlawed.[34]

Today, marijuana is federally categorized as a schedule I drug, alongside hard drugs like heroin and cocaine.[35] According to the Supremacy Clause, federal law trumps state law, which means that even if one is in a state where marijuana is legal, he or she could still face federal prosecution.[36] A drug conviction may prevent citizens from taking out student loans, securing a job, renting a home, obtaining welfare benefits, or even voting.[37] It is time to end the stigma surrounding marijuana because the drastic effects of its criminalization are affecting millions of Americans.[38]

[1] See infra note 2 and accompanying text.

[2] Pamela Engel, Watch How Quickly the War on Drugs Changed America’s Prison Population, Bus. Insider (Apr. 23, 2014, 1:19 PM), http://www.businessinsider.com/how-the-war-on-drugs-changed-americas-prison-population-2014-4.

[3] Fareed Zakaria, Incarceration Nation: The War on Drugs Has Succeeded Only in Putting Millions of Americans in Jail, Time (Apr. 2, 2012), http://content.time.com/time/magazine/article/0,9171,2109777-1,00.html.

[4] Every 25 Seconds: The Human Toll of Criminalizing Drug Use in the United States, ACLU Update (ACLU/ Human Rights Watch, New York, N.Y.), Oct. 5, 2016, at 2, 4.

[5] Id. at 5.

[6] Id.

[7] Michelle Alexander, The New Jim Crow: Mass Incarceration in the Age of Colorblindness 8 (The New Press 2012).

[8] Ray Williams, Why “The War on Drugs” Has Failed, Psychology Today (June 6, 2011), https://www.psychologytoday.com/blog/wired-success/201106/why-the-war-drugs-has-failed.

[9] Saki Knafo, 10 Ways to Reduce Prison Overcrowding and Save Taxpayers Millions, Huffington Post (Nov. 8, 2013, 7:30 AM), http://www.huffingtonpost.com/2013/11/08/prison-overcrowding_n_4235691.html.

[10] Id.

[11] See infra note 12 and accompanying text.

[12] Tanya Basu, Colorado Raised More Tax Revenue from Marijuana Than from Alcohol, Time (May 18, 2016, 12:49 PM), http://time.com/4037604/colorado-marijuana-tax-revenue/.

[13] See infra notes 14, 21 and accompanying text.

[14] See infra notes 15-20 and accompanying text.

[15] Griswold v. Connecticut, 381 U.S. 479, 484 (1965).

[16] Lawrence v. Texas, 539 U.S. 558, 578-79 (2003); Planned Parenthood v. Casey, 505 U.S. 833, 846 (1992); Cruzan v. Director, Missouri Dept. of Health, 497 U.S. 261, 304 (1990); Roe v. Wade, 410 U.S. 113, 166 (1973); Griswold, 381 U.S. at 484.

[17] Id.

[18] Ravin v. State, 537 P.2d 494, 511 (Alaska 1975).

[19] Id.

[20] Id. at 506-12.

[21] Washington v. Glucksberg, 521 U.S. 702, 703 (1997).

[22] Patrick Stack, A Brief History of Medical Marijuana, Time (Oct. 21, 2009), http://content.time.com/time/health/article/0,8599,1931247,00.html.

[23] Id.

[24] Id.

[25] John Dvorak, America’s Harried Hemp History, Hemphasis (2004), http://www.hemphasis.net/History/harriedhemp.htm.

[26] Matt A.V. Chaban, Cannabis Construction: Entrepreneurs Using Hemp for Home-Building, N.Y. Times (July 6, 2015), https://www.nytimes.com/2015/07/07/nyregion/cannabis-construction-entrepreneurs-use-hemp-in-home-building.html?_r=0; Stack, supra note 21.

[27] Seeley v. State, 940 P.2d 604, 628 n.10 (Wash. 1997).

[28] Id.

[29] Tim Weber, Would Government Prohibition of Marijuana Pass Strict Scrutiny?, 46 Ind. L. Rev. 529, 543 (2013).

[30] Id.

[31]Id.

[32] Ravin, 537 P.2d at 508 (comparing cannabis to alcohol and barbiturates, which are legal, and do kill people).

[33] Jennifer Welsh & Kevin Loria, 23 Health Benefits Of Marijuana, Business Insider (Apr. 20, 2014, 3:03 PM), http://www.businessinsider.com/health-benefits-of-medical-marijuana-2014-4/#it-can-be-used-to-treat-glaucoma-1.

[34] Dr. Malik Burnett & Dr. Amanda Reiman, How Did Marijuana Become Illegal in the First Place?, Drug Policy Alliance (Oct. 9, 2014), http://www.drugpolicy.org/blog/how-did-marijuana-become-illegal-first-place.

[35] 21 U.S.C. § 812 (2012).

[36] U.S. Const. art. VI, cl. 2.

[37] Every 25 Seconds, supra note 4, at 11.

[38] See supra notes 3-5, 7, 9, 20, 26, 29-31, 37 and accompanying text.

The Criminalization of HIV

By Barbara J. Roman, J.D. Class of 2018 Touro Law Review Associate Editor

From the start of the HIV epidemic, fear and ignorance about HIV’s modes and risks of transmission[1] have fueled a backlash against people living with HIV/AIDS.[2] This backlash is most evident in existing laws that punish those living with HIV for engaging in consensual sex or other activities that pose no risk of HIV transmission.[3] These laws penalize “alleged, perceived or potential HIV exposure; alleged nondisclosure of a known HIV-positive status before any sexual contact (including acts that do not risk HIV transmission); or non-intentional HIV transmission.”[4] In the 1980s and early 1990s, HIV/AIDS was a leading cause of death among adults in the U.S., with the mortality rate climbing every year from 1987 to 1994.[5] By the latter year, the disease had become the leading cause of death among adults 25-44 years of age.[6] In 1990, Congress passed the Ryan White Comprehensive AIDS Resources Emergency Act requiring each state to enact criminal laws to prosecute any HIV-infected individual who knowingly exposed another person to HIV.[7] The states obliged, but some forced HIV-positive people to disclose their status before every sex act and many made any possible exposure to HIV a felony.[8] By 2011, a total of sixty-seven laws explicitly focused on persons living with HIV had been enacted in thirty-three states.[9] There are, however, problems with these HIV laws.[10]

Many HIV laws are unjust and the penalties are wildly disproportionate to the offense.[11] Long jail terms are imposed for HIV convictions even when there is no real risk of transmission and no actual injury.[12] For example, in Iowa, Nick Rhoades plead guilty to a Class B felony after a one-time, consensual sexual encounter in which he wore a condom.[13] Mr. Rhodes received a sentence of twenty-five years and was required to register as a sex offender.[14] Other Class B felonies in Iowa include manslaughter, kidnapping, and robbery.[15] Engaging in sexual intercourse while having HIV or AIDS is a Class A felony in Arkansas and carries a sentence of six to thirty years.[16] In comparison, intentionally using a deadly weapon to cause serious injury to a family member is a Class B felony with a sentence of only five to twenty years.[17] A felony conviction and registration as a sex offender adds additional burdens to someone already dealing with the stresses of living with HIV.[18]

Advocates of the criminalization of HIV/AIDS argue that criminal laws deter HIV-positive individuals from risk taking behavior, as well as punish individuals who place others at risk of infection.[19] Unlike criminals of violent sexual assaults, most people who spread HIV do so through carelessness or ignorance, not malevolence.[20]   HIV laws create a culture of fear, and often discourage people from knowing their HIV status, seeking treatment, or disclosing their HIV status in appropriate circumstances, all of which are counterproductive in terms of curbing the transmission of HIV.[21] HIV experts from around the country have concluded that HIV criminalization statutes do nothing to curb the spread of the virus.[22] Instead, these laws “undermine the public health goals of promoting HIV screening and treatment” by scaring people away from learning their status. [23] Additionally, if a person thinks he or she may land in prison for sharing his or her status, he or she might be disinclined to share that information with potential partners.[24] Moreover, most HIV criminalization laws target people who spread HIV to a partner who consented to have sex in the first place.[25] While status disclosure is important, the burden should remain on the HIV-negative population to protect themselves from exposure.[26] By placing exclusive responsibility on the person living with HIV, these laws undermine the public health messages regarding shared responsibilities for safe sex.[27]

Many of these laws have not been updated since the early ’90s, and thus reflect a misunderstanding of the virus at the time.[28] Most states maintain laws based on outdated science[29] and have not assessed how their laws stand up to current evidence regarding HIV transmission risk.[30] The majority of HIV laws were passed before studies showed that antiretroviral therapy (ART) significantly reduced viral load.[31] Having a suppressed or undetectable viral load makes it very unlikely that an individual can transmit the HIV virus.[32]

Some laws criminalize spitting, biting, and “throwing of body fluids.”[33] An HIV positive homeless man in Dallas was sentenced to thirty-five years in prison for harassing a public servant with a deadly weapon: his saliva.[34] The Centers for Disease Control and Prevention categorizes the risk of transmission of HIV from spitting as negligible, and the exposure unlikely.[35]

The Civil Rights Division of the United States Department of Justice issued a best practices guide to help states reform their laws and ensure that their policies do not place unnecessary burdens on people who are living with HIV.[36] These best practices suggest that, among other things, criminal laws regarding HIV transmission and prevention be scientifically based, and that prosecutors and others in law enforcement have an accurate understanding of transmission risks.[37] In addition, Federal legislation has been introduced that would address discrimination in criminal laws against people with HIV.[38] The Repeal Existing Policies that Encourage and Allow Legal Discrimination Act (“REPEAL HIV”) was introduced in the House in March 2015.[39] The bill recommends that state attorney general’s work with public health officials to ensure that laws, regulations, and policies are all in line with the bill’s provisions regarding people living with HIV/AIDS.[40]

An important component to preventing the spread of HIV is to consider whether many of the HIV criminal laws run counter to our current understanding of best public health of scientific evidence about HIV transmission. States must also ensure that the laws do not undermine the public health goals of promoting HIV screening and treatment. While HIV-specific state criminal laws once were initially well-intentioned and necessary law enforcement tools, most are unjust or do not reflect the current state of the science of HIV. Laws that punish people for consensual behavior, or for behavior that pose no risk of HIV transmission, serve only to further stigmatize a community that is already marginalized while missing opportunities for prevention education.[41] States that choose to retain HIV-specific criminal laws should reform and modernize their laws so that they accurately reflect the current science of risk and modes of transmission and ensure they are the desired vehicle to achieve the states’ intended public health goals.

[1] See Lawrence K. Altman, AIDS Studies Hint Saliva May Transmit Infection, N.Y. Times, Oct. 9, 1984, at C1.

[2] Poll Indicates Majority Favor Quarantine for AIDS Victims, N.Y. Times, http://www.nytimes.com/1985/12/20/us/poll-indicates-majority-favor-quarantine-for-aids-victims.html (last visited Feb. 5, 2017).

[3]See HIV Criminalization: A Challenge to Public Health and Ending AIDS, Scribd, https://www.scribd.com/document/217500583/2014-AIDSWatch-HIV-Criminalization-Fact-Sheet (last visited Feb. 5, 2017).

[4] Id.

[5] Thirty Years of HIV/AIDS: Snapshots of an Epidemic, Amfar, http://www.amfar.org/thirty-years-of-hiv/aids-snapshots-of-an-epidemic (last visited Feb. 5, 2017).

[6] Lawrence K. Altman, AIDS Is Now the Leading Killer of Americans From 25 to 44, N.Y. Times, Jan. 31, 1995, at C2.

[7] Ryan White Comprehensive AIDS Resources Emergency Act of 1990 (Pub. L. 101-381; 104 Stat. 576).

[8] See, e.g., Cal. Health & Safety Code § 120600 (West 2014); LA. Rev. Stat. Ann. § 40:1062 (2014); Mont. Code Ann. § 50-18-112 (2013); N.Y. Pub. Health Law § 2307 (McKinney 2014); S.C. Code Ann. § 44-29-60 (2014); Tenn. Code. Ann. § 68-10-107 (2014); VT. Stat. Ann. tit. 18 § 1106 (2014); W. VA. Code § 16-4-20 (2014); see also Chart: State –by-State Criminal Laws Used to Prosecute People with HIV, The Ctr. for HIV Law and Pol’y, (2013), http://hivlawandpolicy.org/resources/chart-state-state-criminal-laws-used-prosecute-people-hiv-center-hiv-law-and-policy-2012.

[9] See J. Stan Lehman et al., Prevalence and public health implications of state laws that criminalize potential HIV exposure in the United States, AIDS Behav., Jun 2014, Vol. 18, 997.

[10] See Best Practices Guide to Reform HIV-Specific Laws to Align with Scientifically-Supported Factors, U.S. Dep’t. of Just., C.R. Div., https://www.aids.gov/federal-resources/national-hiv-aids-strategy/doj-hiv-criminal-law-best-practices-guide.pdf (last visited Feb. 5, 2017).

[11] Infectious Diseases Society of America (IDSA) and HIV Medicine Association Position on the Criminalization of HIV, Sexually Transmitted Infections and Other Communicable Diseases, HIV Med. Ass’n (Mar. 2015), http://www.hivma.org/uploadedFiles/HIVMA/Policy_and_Advocacy/HIVMA-IDSA-Communicable%20Disease%20Criminalization%20Statement%20Final.pdf.

[12] See, e.g., People v. Plunkett, 77 A.D.3d 1442, 1443, 907 N.Y.S.2d 919, 920 (2010), aff’d as modified, 19 N.Y.3d 400, 971 N.E.2d 363 (2012). An HIV-positive man was sentenced to 10 years in prison for aggravated assault after biting a police officer. His saliva was considered a dangerous instrument for the purposed of the “aggravated” portion of the charge; see, e.g., State v. Hinkhouse, 915 P.2d 489, 489 (1996). A man was convicted of ten counts of attempted murder and ten counts of attempted assault based on allegations that he engaged in unprotected sexual intercourse without disclosing his medical condition.

[13] Rhoades v. State, 840 N.2d 726 (Iowa Ct. App. 2013), vacated, 848 N.W.2d 22 (Iowa 2014) (plead to violating Criminal Transmission of Human Immunodeficiency Virus, Iowa Code § 709C.1(1994)).

[14] Id.

[15] Iowa Code Ann. § 709.3 (West 2013).

[16] Ark. Code Ann. §§ 5-14-123, 5-4-401, 5-4-201 (West 2010).

[17] Id.

[18] See US Dep’t. of Just., supra note 10; see, e.g., Saundra Young, Imprisoned Over HIV: One Man’s Story, CNN (Nov. 9, 2012, 8:42 PM), http://www.cnn.com/2012/08/02/health/criminalizing-hiv; Twenty states (Arizona, California, Florida, Illinois, Iowa, Kansas, Massachusetts, Minnesota, Missouri, Nebraska, New Hampshire, New Hampshire, New Jersey, New York, North Dakota, Pennsylvania, South Carolina, Texas, Virginia, Washington, and Wisconsin) and the District of Columbia have enacted laws regarding the post-incarceration involuntary civil commitment of individuals convicted of certain sex offenses under certain circumstances, including HIV crimes. In addition, the Adam Walsh Child Protection Safety Act of 2006, 42 USC § 1691, et seq., authorizes the federal government to institute involuntary civil commitment proceedings for federal sex offenders under certain circumstances.

[19] See Winifred H. Holland, HIV/AIDS and The Criminal Law, 36 Crim. L.Q. 279 (1993-1994).

[20] Robert Klitzman & Ronald Bayer, Mortal Secrets: Truth and Lies in the Age of AIDS 197 (Johns Hopkins University Press 2003).

[21] Brad Barber & Browen Lichtenstein, Support for HIV Testing and HIV Criminalization Among Offenders Under Community Supervision, Res. in the Soc. of Health Care, 33 (2015), http://www.hivlawandpolicy.org/sites/www.hivlawandpolicy.org/files/BARBER_LICHTENSTEIN%20SUPPORT%20HIV%20TESTING%20AND%20CRIMINALIZATION%202015-2.pdf.

[22] National HIV/AIDS Strategy for the United States, The White House (July 2010), https://obamawhitehouse.archives.gov/sites/default/files/uploads/NHAS.pdf.

[23] Id.

[24] LGBT Policy Spotlight: HIV Criminalization Laws (2016), Movement Advancement Project, https://www.lgbtmap.org/file/policy-spotlight-HIV-criminalization.pdf.

[25] Lower your Sexual Risk for HIV, Aids.gov, https://www.aids.gov/hiv-aids-basics/prevention/reduce-your-risk/sexual-risk-factors/ (last visited Feb 5, 2017).

[26] Id.

[27] The White House, supra note 22, at 37.

[28] See US Dep’t. of Just., supra note 10.

[29]HIV-Specific Criminal Laws Ctrs. for Disease Control and Prevention, https://www.cdc.gov/hiv/policies/law/states/exposure.html (last visited Feb. 5, 2017).

[30] See US Dep’t. of Just., supra note 10.

[31] HIV Transmission Risk: Estimated Per-Act Probability of Acquiring HIV from an Infected Source, by Exposure Act, Ctrs. for Disease Control and Prevention, https://www.cdc.gov/hiv/risk/estimates/riskbehaviors.html (last visited Feb. 5, 2017).

[32] Id.

[33] See The White House supra note 22, at 36; Eleven states still have statutes that criminalize spitting, biting and throwing while HIV positive (Georgia, Indiana, Louisiana, Missouri, Mississippi, Nebraska, Ohio, Pennsylvania, South Carolina, South Dakota, Utah).

[34] Campbell v. State, No. 05-08-00736-CR, 2009 WL 2025344, at 1 (Tex. App. Jul. 14, 2009).

[35] HIV Transmission Risk: Estimated Per-Act Probability of Acquiring HIV from an Infected Source, by Exposure Act, Ctrs. for Disease Control and Prevention, https://www.cdc.gov/hiv/risk/estimates/riskbehaviors.html (last visited Feb. 5, 2017).

[36] U.S. Dep’t. of Just., supra note 10.

[37] U.S. Dep’t. of Just., supra note 10.

[38] H.R. 1586, 114th Cong. REPEAL HIV Discrimination Act of 2015 (2015-2016).

[39] Id.

[40] Id.

[41] U.S. Dep’t. of Just., supra note 10.