children sex offenders: how the adam walsh child protection and safety act hurts the same children...

8/12/2019 Children Sex Offenders: How the Adam Walsh Child Protection and Safety Act Hurts the Same Children it is Trying …

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YOUNG MACRO 3/6/2014 3/6/2014

Children Sex Offenders:

How the Adam Walsh Child Protectionand Safety Act Hurts the Same Children it

is Trying to Protect

I. I NTRODUCTION

One afternoon, wh!e I wa" #!er$n% n a !aw off#e, a wo&an wa!$e' nwth her a'ora(!e fo)r*+ear*o!' 'a)%hter. he "at (ehn' the !ar%e&aho%an+ 'e"$ an' (e%an to te!! her "tor+ !$e &o"t #!ent" '' fro& 3-00*-00 .&. oweer, th" wo&an wa" 'fferent. he wa" a &other "#are' forher 'a)%hter an' terrfe' for her thrteen*+ear*o!' "on. he wa" "t)#$ nthe &''!e of the !oe for her #h!'ren an' the rea!te" of the )'#a!"+"te&.

eera! wee$" ror, the wo&an" 'a)%hter #a&e to her !a)%hn%, wh!ete!!n% her that her (rother ha' her erfor&, what the &other !ater'eter&ne' to (e, ora! "e on h&. orrfe', the &other ta!$e' to her "on.e e!ane' that he fo)n' a #t)re on the Internet an' wa" #)ro)". One'a+ wh!e "he wa" %one for twent+ &n)te", the "on an' 'a)%htereer&ente'. 5hat th" !tt!e (o+ '' not $now, nor #o)!' he )n'er"tan',wa" that th" "n%!e a#t wo)!' #han%e the re"t of h" !fe. The &other,heart(ro$en, too$ her "on to a "+#hatr"t for #o)n"e!n%. The #o)n"e!or

then t)rne' to the a)thorte". The 'e"erate #r+ fro& the &other for he!)!t&ate!+ #a)"e' her "on to (e ta$en o)t of the ho&e an' ne"t%ate' forfe!on+ #har%e".

Thro)%ho)t the re"t of th" Note, $ee th" (o+ n &n' (e#a)"e fa&!e"n "&!ar "t)aton" are a!"o (en% h)rt when a )en!e " treate' an' )n"he' a" an a')!t. If he " #har%e' an' fo)n' %)!t+, he w!! hae tore%"ter a" a "e offen'er for ffteen +ear" to !fe. 1 " "#hoo!, an+ f)t)ree&!o+er", an' an+ or%anaton n wh#h he " no!e' w!! (e notfe'. 2

5hat wa" on#e a nor&a! (o+ who wa" )"t #)ro)", w!! (e foreer "een n"o#et+" e+e", an' n h" e+e", a" a "e offen'er.

1 . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, 120

tat. :; < 11.2 . Id. < 121, 120 tat. at 9;.

203



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204 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49In o)r "o#et+, #h!'ren hae (een treate' 'fferent!+ than a')!t" n a!!

area" of !fe. Ch!'ren are re?)re' to atten' "#hoo!, for(''en to wor$wtho)t er&""on (efore a%e "teen, )na(!e to ote, an' roh(te' fro&'rn$n% a!#oho!.3 It " we!! a##ete' that #h!'ren are 'fferent fro& a')!t"

&enta!!+, h+"#a!!+, an' e&otona!!+.

4

A##or'n%!+, "o#et+ an'!aw&a$er" hae #reate' 'fferent %)'e!ne" an' ee#taton" for #h!'ren.The #on#et of treatn% #h!'ren 'fferent!+ than a')!t" " h%h!+ e'en#e' (+ the )en!e )"t#e "+"te&. The )en!e )"t#e "+"te& wa" #reate' to%e #h!'ren 'fferent ena!te"@the fo#)" (en% reha(!taton rather than )n"h&ent. The ena#t&ent of the A'a& 5a!"h Ch!' 7rote#ton an'afet+ A#t A'a& 5a!"h A#tB re#ent!+ #han%e' the !on%*he!' 'ea!" of "eoffen'er !aw" n the )en!e )"t#e "+"te&. 6 The A'a& 5a!"h A#t !ower"the a%e of )en!e" who &)"t re%"ter a" "e offen'er" an' re?)re" )(!#notf#aton.; It a!"o ean'" the 'efnton of a "e offen"e an' !en%then"the t&e for re%"traton an' notf#aton for tho"e who are 'ee&e' "eoffen'er".:

5h!e "tate" are now re?)re' to &!e&ent new e!e&ent" a""o#ate'wth the A'a& 5a!"h A#t, "tate" hae the '"#reton to "et an a%e !&t!ower than fo)rteen for )en!e "e offen'er".9 tate" &a+ a!"o &!e&ent"tr#ter )(!# notf#aton o!#e" an' n#!)'e &ore #r&e" that re?)rere%"traton.10 The "tate #annot (e )n'er*n#!)"e, or e!"e t " n o!atonof the A#t.11 tate" therefore "ho)!' &!e&ent the %)'e!ne" to affe#t the!ea"t a&o)nt of #h!'ren an' )n"h the& n the !ea"t har&f)! wa+, wh!e"t!! a('n% (+ the %)'e!ne" of the A'a& 5a!"h A#t.

Th" Note ar%)e" that the threat of re#'"& a!one 'oe" not o)twe%hthe !on%*ter& &enta! hea!th #on"'eraton" an' har& a""o#ate' wth thena(!t+ to oer#o&e a mistake &a'e (+ a #h!' ')e to the re%"traton an'notf#aton re?)re&ent" &o"e'. The Note (e%n" (+ '"#)""n% n 7art IIthe (a#$%ro)n' of "e offen'er !aw". 7art III 'e"#r(e" the A'a& 5a!"hA#t, the !ate"t "e offen'er !aw ena#te' n )!+ 2006. 7art I> '"#)""e" the

3 . 8arr+ C)nnn%ha&, A Question of Capacity To!a"ds a Comp"e#ensi$e and

Consistent Vision of C#i%d"en and T#ei" &tatus unde" La!, 10 U.C. DA>I . U>. 8.

7O8Y 2;, 294*99 2006B.4 . Id. at 2:1*:2. . Da' O. Ern$, Immatu"ity' No"mati$e Competence' and (u$eni%e T"ansfe" )o!

*Not+ to ,unis# Mino"s fo" Ma-o" C"imes, :2 TF. 8. R F>. 1, 19*61 2004B.6 . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, 120

tat. :;.; . Id. << 111:B, 113, 120 tat. at 93.: . Id. << 111, 11, 121, 120 tat. at 92, 9, 9;.9 . Id. < 111, 120 tat. at 92.10 . Id. << 111, 11:, 120 tat. at 92, 96.11 . &ee id. at < 124, 120 tat. at 9: re?)rn% )r"'#ton" to &!e&ent the A'a&

5a!"h A#t (+ no !ater than three +ear" after )!+ 2;, 2006B.



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200:H C)ILDREN &E OFFENDER& 20ne%ate &a#t reo)" "tat)te" &o"e' on #h!'ren. 7art > ar%)e" thatthe A'a& 5a!"h A#t h)rt" #h!'ren &ore than t (eneft" the )(!#. 7art >I'"#)""e" wh+ #h!'ren "ho)!' (e tre' n )en!e #o)rt" n a##or'an#ewth the Con"tt)ton. na!!+, 7art >II " the a)thor" #on#!)"on that the

A'a& 5a!"h A#t " a "te n the wron% 're#ton an' h)rt" the "a&e#h!'ren t "et" o)t to rote#t.

II. F OFNDFR 8A5

A. The Fo!)ton of e Offen'er 8aw"

7ror to 1994, few "tate" re?)re' #on#te' "e offen'er" to nfor&!o#a! !aw enfor#e&ent off#a!" of ther #)rrent !n% a''re"".12 In 1994,Con%re"" a""e' the a#o( 5etter!n% Cr&e" A%an"t Ch!'ren an'e)a!!+ >o!ent Offen'er A#t,13 re?)rn% "tate" to &!e&ent a "eoffen'er re%stry program or forfeit ten percent of federal funds for

state and local law enforcement.14 Th" ear!+ Act did not reuire pu!lic

data!ases or pu!lic notification.1 The &)r'er of "een*+ear*o!' Me%anJan$a (+ a re!ea"e' "e offen'er !n% on her "treet ha' a tre&en'o)"&a#t on "e offen'er re%"tr+ !aw".16 E+ 1996, eer+ "tate ha' !e%"!atonre?)rn% #ertan "e offen'er" to re%"ter wth !aw enfor#e&ent. 1; Thee'era! Me%an" 8aw a)thore' "tate" to Kre!ea"e re!eant nfor&atonthat =wa"H ne#e""ar+ to rote#t the )(!# #on#ernn% a "e#f# er"onre?)re' to re%"ter . . . .L1: The 7a& 8+n#hner e)a! Offen'er Tra#$n%an' I'entf#aton A#t wa" a!"o ena#te' n 1996, ena(!n% a fe'era!

12 . NAT8 CTR . OR MIING AND F78OITFD CI8DRFN, F*OFNDFR- ITORY,

htt-//www.&""n%$'".#o&/&""n%$'"/"er!et/7a%eer!et8an%)a%eCo)ntr+

enU7a%eI'3032 !a"t "te' e(. 6, 200:B.13 . a#o( 5etter!n% Cr&e" A%an"t Ch!'ren an' e)a!!+ >o!ent Offen'er

Re%"traton 7ro%ra&, 7)(. 8. No. 103*322, 10: tat. 203: 1994B #o'fe' a" a&en'e' at

42 U..C. < 140;1 2006BB.14 . NAT8 CTR . OR MIING AND F78OITFD CI8DRFN, sup"a note Frror-

Referen#e "o)r#e not fo)n'.1 . 42 U..C. < 14;01eB2B

The "tate of an+ a%en#+ a)thore' (+ the "tate "ha!! re!ea"e re!eant nfor&aton

that " ne#e""ar+ to rote#t the )(!# #on#ernn% a "e#f# er"on re?)re' to

re%"ter. . . . The re!ea"e of nfor&aton )n'er th" ara%rah "ha!! n#!)'e the

&antenan#e of an Internet "te #ontann% ")#h nfor&aton that " aa!a(!e to the

)(!#.

Id.16 . NAT8 CTR . OR MIING AND F78OITFD CI8DRFN, sup"a note 12.1; . F!a(eth Garfn$!e, Comin/ of A/e in Ame"ica T#e Misapp%ication of &e01

Offende" Re/ist"ation and Community1Notification La!s to (u$eni%es, 91 CA8. 8. R F>. 163,

16; 2003B.1: . Me%an" 8aw of 1996, 7)(. 8. No. 104*14, 110 tat. 134 #o'fe' at 42 U..C.



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206 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49'ata(a"e to tra#$ "e offen'er".19

5th !tt!e %)'an#e fro& the e'era! Goern&ent, "tate" hae "tr)%%!e'for the a"t ten +ear" to #reate "e offen'er re%"tr+ !aw". Th" !a#$ of%)'an#e ha" ro')#e' a w'e '"#rean#+ n (oth re%"traton an'

notf#aton !aw" (etween "tate".20

or ea&!e, "o&e #o)nte" n5a"hn%ton re?)re )(!# notf#aton #on""tn% of 'oor*to*'oor f!er" or o"tn% "%n",21 wh!e the "tate of 8o)"ana re?)re" #h!' "e offen'er" to er"ona!!+ notf+ ther ne%h(or" of ther "e offen'er "tat)".22 Me%an"8aw re?)re' a "tate to ro'e Kre!eant nfor&atonL (+ a &etho' ofnotf#aton that " Kne#e""ar+ to rote#t the )(!#.L23 Ee#a)"e the !aw ''not 'efne ea#t!+ what #on"tt)te" Kre!eant nfor&aton,L 'efnton" ar+ (etween the "tate".24

The w'e"t '"#rean#e" n "tate !aw" re!ate to )en!e "e offen'er". In"o&e "tate", )en!e" were n#ororate' nto oer(roa' re%"tr+ !aw" thattreate' the& a" a')!t", wh!e other "tate" "e#f#a!!+ wrote the& o)t of "eoffen"e !aw" entre!+.2 5thn the thrt+*" "tate" that n#!)'e )en!e" n

ther re%"tr+ !aw", nneteen "tate" hae no &n&)& a%e re?)re&ent forre%"traton, an' e%ht "tate" "et a%e re?)re&ent" ran%n% fro& e!een toffteen*+ear"*o!'.26 The A'a& 5a!"h A#t, ena#te' on )!+ 2;, 2006,re?)re" "tate" to )(!#!+ re%"ter )en!e "e offen'er" a" +o)n% a"fo)rteen (+ 2009.2; The %oa!" of th" A#t are K=tHo rote#t #h!'ren fro&

< 140;1eB2B 2000BB.19 . 7a& 8+n#hner e)a! Offen'er Tra#$n% an' I'entf#aton A#t of 1996, 7)(. 8.

No. 104*236, 110 tat. 3093 #o'fe' at 42 U..C. < 140;2 2000BB.20 . &ee /ene"a%%y NAT8 CTR . OR MIING AND F78OITFD CI8DRFN, sup"a note

E""o" Refe"ence sou"ce not found .21 . M#he!e 8. Far!*)((ar', T#e C#i%d &e0 Offende" Re/ist"ation La!s T#e

,unis#ment' Li2e"ty Dep"i$ation' and 3nintended Resu%ts Associated !it# t#e &ca"%et Lette"

La!s of t#e 4556s, 90 N5. U. 8. R F>. ;::, :10 1996B e!ann% that the"e "%n" t+#a!!+hae the offen'er" hoto%rah, a''re"", an' e!#t 'eta!" of the offen'er" h"tor+B.22 . 8A. R F>. TAT. A NN. < 1-42 200 ). 200:BP NAT8 CTR . OR MIING

AND F78OITFD CI8DRFN, sup"a note E""o" Refe"ence sou"ce not found .23 . 42 U..C. < 140;1eB 2000B.24 . Id .2 . &ee 8n'a A. +&an"$, Additiona% ,oints of Inte"est , 3: U>. AM. 8. DIG.

423, 42; )ne 2006B.26 . 8INDA A. QYMANJI, NAT8 CTR . OR U>FNI8F UTICF, NA7OT 11:B,

MFGAN 8A5- U>FNI8F F OFNDFR R FGITRATION 8O5FR AGF 8IMIT 2006B.2; . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, 120

tat. :;, 93 n#ororatn% the a#o( 5etter!n%, Me%an N#o!e Jan$a an' 7a& 8+#hner

e Offen'er Re%"traton an' Notf#aton 7ro%ra& n "e#ton 103B to (e #o'fe' at 42

U..C. < 16901B. Th" Ke Offen'er Re%"traton an' Notf#aton A#tL e!an" that t"

)ro"e " to Krote#t the )(!# fro& "e offen'er" an' offen'er" a%an"t #h!'ren, n

re"on"e to the #o)" atta#$" (+ o!ent re'ator" a%an"t . . .L "eenteen na&e' #t&".

Id . at << 101*102, 120 tat. at 90. None of the na&e" of #t&" !"te' n th" A#t were

atta#$e' (+ )en!e", +et th" a#t w'en" t" "#oe an' n#!)'e" +o)n%er )en!e" than



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200:H C)ILDREN &E OFFENDER& 20;"e)a! e!otaton an' o!ent #r&e, to reent #h!' a()"e an' #h!' orno%rah+, to ro&ote Internet "afet+, an' to honor the &e&or+ of A'a&5a!"h an' other #h!' #r&e #t&".L2: n#e the A'a& 5a!"h A#tn#ororate" )en!e" nto the 'efnton of tho"e who &)"t re%"ter a" "e

offen'er", the A#t e""enta!!+ h)rt" the "a&e #h!'ren t a&" to rote#t.

E. The Rhetor# Drn% e Offen'er 8aw"

The !an%)a%e n the A'a& 5a!"h A#t e&ha"e" the rote#ton of#h!'ren, howeer the A#t a!"o 'e&an'" that #h!'ren (e )n"he' an' tre'a" a')!t".29 ho)!' a #h!' who #o&&t" a "n%!e "e)a! a#t a%an"t another#h!' (e treate' the "a&e a" a fort+*+ear*o!' &an who "e)a!!+ a""a)!t" a#h!' Th" " the fr"t ?)e"ton eer+ !e%"!ator "ho)!' a"$ (efore "%nn%!e%"!aton that affe#t" )en!e "e offen'er" n the "a&e &anner a" taffe#t" ther a')!t #o)nterart". a'!+, the rhetor# 'rn% the "e offen'erre%"tr+ !aw" " ?)te 'fferent.30 Nether rhetor# fro& !e%"!ator", nor thett!e of the A#t, fo#)"e" on )en!e".31 The"e #h!'ren are often "wet ) n

oer!+*(roa' !aw".32

Eefore the A#t wa" a""e', "tate" ha' the a)thort+ toe#!)'e )en!e" fro& re%"tr+ !aw".33 oweer, wth the A'a& 5a!"hA#t, "tate" are now re?)re' to a')"t ther "e offen'er !aw" to n#!)'e )en!e".34

There were &)!t!e rhetor#a! 'e#e" )"e' when &!e&entn% theA'a& 5a!"h A#t. The A#t " na&e' after A'a& 5a!"h, who wa" a(')#te'fro& a &a!! when he wa" ".3 A'a&" arent", ohn an' Re 5a!"h,K'e'#ate' the&"e!e" to rote#tn% #h!'ren fro& #h!' re'ator",

reo)" "e offen'er a#t". &ee /ene"a%%y id.2: . Id.29 . 7)(. 8. No. 109*24:, 120 tat. :;.30

. RANJ8IN F. QIMRING, ON D. AND CATFRINF T. MACARTFR OUND.,R FFARC NFT5ORJ ON ADO8FCFNT DF>. AND U>FNI8F UTICF, A N AMFRICAN

TRA>FTY- 8FGA8 R F7ONF TO ADO8FCFNT FUA8 OFNDING, FFCUTI>F

UMMARY 2, a$ai%a2%e at htt-//www.a'.or%/'own!oa'"/4424A&er#anS20Trae"t+.'f

=herenafter QIMRING FFCUTI>F UMMARYH KThe NA7N" reort 'raw" a #t)re of the

a'o!e"#ent "e offen'er that often "ee&" "&!ar to the &a%e of the a')!t offen'er . . . -

'eant, re#'"t, an' a #ontn)n% 'an%er to the #o&&)nt+.LB.31 . &ee' e./., 7)(. 8. No. 109*24:, 120 tat. :;, < 2aB, 120 tat. at :9 e!ann%

that th" a#t " na&e' after A'a& 5a!"h, who wa" a(')#te' (+ an a')!t when he wa" "

+ear" o!'@not (+ "o&eone a%e' fo)rteen to e%hteenB.32 . &ee QIMRING FFCUTI>F UMMARY, sup"a note Frror- Referen#e "o)r#e not

fo)n', at 1*2.33 . &ee RANJ8IN F. QIMRING, A N AMFRICAN TRA>FTY- 8FGA8 R F7ONF TO

ADO8FCFNT FUA8 OFNDING 14; Un. of Ch#a%o 7re"" 2004B =herenafter Q IMRINGH

KThe fe'era! !aw" that "et "tan'ar'" for "tate re%"traton an' notf#aton nether re?)re not roh(t the a!#aton of tho"e "tat)te" to )en!e".LB #taton o&tte'B.34 . 7)(. 8. No. 109*24:, 120 tat. :;.3 . Id.



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20: CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49 reentn% atta#$" on o)r #h!'ren, an' (rn%n% #h!' re'ator" to )"t#e.L36 On t" fa#e, the"e are o"te %oa!"P howeer, a !e"" aea!n%a"e#t of the A#t " that t "ee$" to )n"h re'ator" to the f)!!e"t 'e%reere%ar'!e"" of whether the re'ator " an a')!t or a #h!'.3;

ran$!n Q&rn% e!an" n An Ame"ican T"a$esty Le/a% Responses to Ado%escent &e0ua% Offendin/ , that $nown fa#t" a(o)t a'o!e"#ent (ehaor#ontra'#t" the a"")&ton that Ka'o!e"#ent "e)a! #on')#t ha" the "a&e#!n#a! an' re'#te "%nf#an#e a" the "a&e #on')#t #o&&tte' (+a')!t".L3: The )(!# ew" "e offen'er" wth %reat o)tra%e an' fear 39 an'the+ are often re%ar'e' a" the wor"t #r&na!". The+ are often #hara#tere'a" han% K1B atho!o%#a! "e)a! orentaton, 2B "e)a! "e#a!aton, 3Bfe' "e)a! ro#!te", an' 4B a h%h !ee! of f)t)re "e)a!'an%ero)"ne"".L40 The"e #hara#ter"t#" are now )nfar!+ attr()te' to )en!e"41 an' #reate the na##)rate an' h%h!+ #ontroer"a! &a%er+ that're" roo"e' !e%"!aton, ")#h a" the A'a& 5a!"h A#t, nto !aw. 42 Oerthe a"t twent+ +ear", )en!e "e offen"e arre"t" hae not n#rea"e'Phoweer, "e offen'er treat&ent ro%ra&" for )en!e" hae n#rea"e'fro& twent+ to "eera! h)n're'.43 There " &ore fo#)" on )en!e "eoffen'er" een tho)%h the offen'er rate ha" a#t)a!!+ 'e#rea"e' twent+*two er#ent "n#e 19:0.44 Eefore the A'a& 5a!"h A#t #an (e ana!+e', t "&ortant to )n'er"tan' the hra"e -u$eni%e se0 offende" . The Natona!A'o!e"#ent 7eretrator Networ$ #reate" an &a%e of the )en!e "eoffen'er that " ?)te "&!ar to an a')!t offen'er- 'eant, re#'"t, an' a#ontn)n% 'an%er to the #o&&)nt+.4 Th" &a%e " na##)rate.A'o!e"#ent" are not +o)n%er er"on" of a')!t"P rather K=tHhe fa!)re toa''re"" the 'ee!o&enta! a"e#t" of )en!e offen'n%, or the re!aton"hor !a#$ of re!aton"h (etween "e)a! 'ean#e an' "o#a! offen'n% n+o)th, or the #ontra"t or "&!arte" (etween )en!e an' a')!t "eoffen'n% !eae th" . . . networ$ . . . wtho)t a #!ear ratona!e.L46

F&r#a! e'en#e "how" that t+e" of )en!e "e offen'er" ar+. 4; Infa#t, there are three t+e" of )en!e "e offen'er"- 1B "tat)" offen'er"P 2B

36 . Id. < 2(B, 120 tat. at :9.3; . &ee /ene"a%%y 7)(. 8. No. 109*24:, 120 tat. :;.3: . QIMRING, sup"a note Frror- Referen#e "o)r#e not fo)n', at 14.39 . Id. at 26.40 . Id. at 2;.41 . Id. at 64.42 . Id.43 . Id. at ;3 #taton o&tte'B.44 . O5ARD N. NYDFR , OICF O U>FNI8F UTICF AND DF8INUFNCY

7RF>FNTION, U>FNI8F ARRFT 2004, at 6 2006B, a$ai%a2%e at htt-//www.n#r".%o/

'ff!e"1/o'/21463.'f.4 . QIMRING, sup"a note 33, at :2*:4.46 . Id. at :6.4; . Id. at 6;.



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200:H C)ILDREN &E OFFENDER& 209fr"t t&e offen'er" no!e' n a()"e #on')#tP an' 3B reeat offen'er".4:

tat)" offen'er" are tho"e who hae #on"en")a! "e wth a artner that "#!o"e to the "a&e a%e a" the offen'er, +et )n'er the a%e of #on"ent. 49

A!tho)%h )n'er the A#t "tat)" offen'er" are not re?)re' to re%"ter, the A#t

'oe" a!!ow for "tate" to #r&na!e "tat)" offen'er", wh#h wo)!' thenre?)re the& to re%"ter .0 M!!on" of teena%er" o!ate th" !aw ea#h +earan' &o"t of the"e o!aton" %o )nreorte' e#et n n"tt)tona! "ettn%".1

The "e#on' t+e of offen'er " a fr"t*t&e offen'er who " a!"o no!e'n a()"e #on')#t.2 The"e offen'er" are nor&a!!+ &)#h o!'er than ther#t& an' hae )"e' for#e.3 The re#'"& rate a&on%"t the"e offen'er"" ?)te !ow, +et a'&tte'!+ )nre'#ta(!e.4 The thr' an' fna! #ate%or+ "reeat offen'er". 5h!e on!+ fo)r to e%ht er#ent of )en!e "eoffen'er" fa!! nto th" #ate%or+, t "ho)!' (e note' that een the"e reeatoffen'er" &a+ o)t%row th" ro(!e& (efore a')!thoo'.6

The )en!e" n the"e three #ate%ore" are "%nf#ant!+ 'fferent thana')!t offen'er". Un!$e a')!t offen'er", Ka re'#ton of 'an%ero)"ne""a&on% an+ %ro) of )en!e "e offen'er" " ro(!e&at#.L; To)n'er"tan' how the A'a& 5a!"h A#t treat" a')!t" an' )en!e" "&!ar!+,an' how t ne%ate!+ affe#t" )en!e", t " &ortant to (e a#?)ante' wththe A#t" %)'e!ne".

III. TF FDFRA8 ADAM 5A8 CI8D 7ROTFCTION AND AFTY ACT

or a 'e#a'e, !e%a! rofe""ona!" an' )en!e a'o#ate" were #on#erne'that ena#tn% !aw" a&e' at a')!t "e offen'er", !$e Me%an" 8aw, wo)!'re")!t n !e%"!at)re" 'e!(erate!+ or tho)%ht!e""!+ )"n% !an%)a%e (roa'eno)%h to en#o&a"" )en!e "e offen'er".: The 'e(ate " now oer. TheA'a& 5a!"h A#t #on#!)"e!+ n#ororate" )en!e" a" +o)n% a" fo)rteennto "e offen'er !aw" for a')!t". &!ar to the a#o( 5etter!n% A#t, the

A'a& 5a!"h A#t re?)re" ea#h "tate to )'ate ther !aw" to ft wthn the"enew ro"on" (+ 2009, or !o"e ten er#ent of the "tate" "hare ea#h +ear n

4: . Id. at 6;*6:.49 . Id. at 6;.0 . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, <<

111*113, 120 tat. :;, 91*93.1 . QIMRING FFCUTI>F UMMARY, sup"a note 30, at 2. An n"tt)tona! off#a!, ")#h

a" the hea' of an orhana%e, " &ore !$e!+ than a arent to #a!! the o!#e when a teen

#o&&t" "e)a! a#t". Id.2 . QIMRING, sup"a note 33, at 6;.3 . Id.4 . Id.

. Id.6 . Id.; . Id. at 6:.: . QIMRING FFCUTI>F UMMARY, sup"a note 30, at 1.



YOUNG MACRO 3/6/2014 3/6/2014

210 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49the f)n'" ro'e' (+ the O&n()" Cr&e Contro! an' afe treet" A#t of196:.9 In 2004, (e#a)"e of the O&n()" A#t, 1.1 (!!on wa" a!!o#ate' forthe #r&e #ontro! "e#ton of the F'war' E+rne Me&ora! )"t#e A"""tan#eGrant 7ro%ra&.60 Th" &a$e" non#o&!an#e wth the A'a& 5a!"h A#t an

)naea!n% oton.

61

The %)'e!ne" ro'e' n the A'a& 5a!"h A#t arethe &n&)& re?)re&ent" nee'e' to re#ee the a!!otte' ten er#ent %rant&one+.62 tate" &a+ "et a !ower a%e !&t on )en!e "e offen'er", &a+&!e&ent "tr#ter )(!# notf#aton o!#e", an' &a+ een n#!)'e &ore#r&e" that re?)re re%"traton, a" !on% a" the "tate " not )n'er*n#!)"ean' not n o!aton of the A#t. To )n'er"tan' the ra&f#aton" of the A#t,one &)"t fr"t #on"'er the #ore #o&onent" of the re%"tr+ an' notf#aton o!#e".

A. e Offen'er Re%"traton an' Notf#aton

1. Defnton"

e#ton 111 of the A'a& 5a!"h A#t "e#f#a!!+ "et" o)t ean'e''efnton" that n#!)'e re%"traton an' notf#aton.63 In a##or'an#e wthth" "e#ton, a "e offen'er " Kan n'')a! who wa" #on#te' of a "eoffen"e.L64 A "e offen"e " a #r&na! offen"e that ha" an Ke!e&entno!n% a "e)a! a#t or "e)a! #onta#t wth another.L 6 There are threeter" of "e offen'er".66 A ter three "e offen'er " )n"ha(!e (+ &ore thanone +ear n r"on.6; The n'')a! &)"t hae atte&te', #on"re', or

9 . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, <

12aB, 120 tat. :;, 9:P see O&n()" Cr&e Contro! an' afe treet" A#t of 196:, 42

U..C. << 3;0*3;66(B 2000B.60 . U.. DF7T O UTICF, TIT8F II- IM7RO>ING TF DF7ARTMFNT O UTICF

GRANT 7ROGRAM, "e#. 0:, htt-//www.o.)"'o.%o/EA/'f/a%.'f.The F'war' E+rne Me&ora! tate an' 8o#a! 8aw Fnfor#e&ent A"""tan#e Grant

7ro%ra& E+rne or&)!a Grant 7ro%ra&B " a artner"h a&on% fe'era!, "tate,

an' !o#a! %oern&ent" to #reate "afer #o&&)nte". E)rea) of )"t#e A"""tan#e

" a)thore' to awar' %rant" to "tate" for )"e (+ "tate" an' )nt" of !o#a!

%oern&ent to &roe the f)n#tonn% of the #r&na! )"t#e "+"te&@wth

e&ha"" on o!ent #r&e an' "ero)" offen'er".

E)rea) of )"t#e A"""tan#e, F'war' E+rne Me&ora! tate an' 8o#a! 8aw Fnfor#e&ent

A"""tan#e Grant 7ro%ra&, htt-//www.o.)"'o.%o/EA/%rant/(+rne.ht&! !a"t "te'

e(. 2;, 200:B.61 . &ee A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, <

12, 120 tat. :;, 9:.62 . Id.63 . Id. < 111, 120 tat. at 91.

64 . Id. < 1111BBABB, 120 tat. at 91*92.6 . Id. << 111 2B*4B, 120 tat. at 91*92.66 . Id. < 1114B, 120 tat. at 91*92.6; . Id. < 1114BAB, 120 tat. at 91.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 211a#t)a!!+ #o&&tte' a "e)a! a()"e or a%%raate' "e)a! a()"e, an a()"e"e)a! #onta#t a%an"t a &nor who ha" not attane' the a%e of thrteen+ear", or a &ore "eere offen"e.6: A ter three offen"e &a+ a!"o (e#o&&tte' f the offen"e no!e" $'nan% of a &nor that " not one"

own #h!' or f the offen"e o##)r" after the offen'er " a ter two "eoffen'er.69

e#on' ter "e offen'er" are tho"e who 'o not ft nto ter three, ()t &a+"t!! (e )n"ha(!e (+ &ore than one +ear n r"on.;0 Ter two n#!)'e"offen"e" a%an"t a &nor, or #on"ra#+ to #o&&t ")#h offen"e" a%an"t a&nor, ")#h a"- 1B "e traff#$n%P 2B #oer#on an' ent#e&entP 3Btran"ortaton wth the ntent to en%a%e n #r&na! "e)a! a#tt+P an' 4Ba()"e "e)a! #on')#t.;1 A ter two offen"e &a+ a!"o no!e- 1B )"e of a&nor n a "e)a! erfor&an#eP 2B "o!#taton of a &nor to ra#t#e ro"tt)tonP or 3B ro')#ton or '"tr()ton of #h!' orno%rah+.;2 Anoffen"e #an a!"o ?)a!f+ a" a ter two f an+ of the"e offen"e" o##)r after theoffen'er " a!rea'+ a ter one offen'er.;3 The fr"t ter n#!)'e" an+ "eoffen'er who 'oe" not "?)are!+ ft nto #ate%ore" two or three. ;4 Ter oneoffen'er" are #on"'ere' at !ow r"$ to reoffen' an' are not "een a"'an%ero)".;

The ean"on of the "e offen"e 'efnton n#!)'e" an+ K=1H #r&na!offen"e that ha" an e!e&ent no!n% a "e)a! a#t or "e)a! #onta#t wthanotherP =an' 2H a #r&na! offen"e that " a "e#fe' offen"e a%an"t a&nor . . . .L;6 An offen"e that " #on"en")a! " not a "e offen"e )n!e"" thea')!t #t& " )n'er the #)"to'a! #are of the offen'er, the #t& " not ana')!t an' the offen'er " &ore than fo)r +ear" o!'er than the #t&, or the#t& " )n'er the a%e of thrteen.;;

A )en!e " #on"'ere' to (e K#on#te'L of a "e offen"e when the )en!e K" 14 +ear" of a%e or o!'er at the t&e of the offen"e an' theoffen"e a')'#ate' wa" #o&ara(!e to or &ore "eere than a%%raate'"e)a! a()"e . . . or wa" an atte&t or #on"ra#+ to #o&&t ")#h anoffen"e.L;:

6: . Id. << 111 4BEB*CB, 120 tat. at 91*92.69 . Id. < 1114B, 120 tat. at 91*92.;0 . Id. < 1113BAB, 120 tat. at 91.;1 . Id. < 111 3BEB, 120 tat. at 91.;2 . Id.;3 . Id. << 111 3BAB*CB, 120 tat. at 91.;4 . Id. < 1112B, 120 tat. at 91.; . Re(e##a M. Yo)n%, &umma"y of &e0 Offende" Re/ist"ation and Community

Notification in Massac#usetts, Cr&. )"t. 7o!+ Coa!ton, Ma+ 200;, htt-//www.##.or%/

Ma+0; New"!etter. ht&Vart#!e1.;6 . < 111BAB, 120 tat. at 92.;; . Id. < 111BCB, 120 tat. at 92.;: . Id. < 111:B, 120 tat. at 93.



YOUNG MACRO 3/6/2014 3/6/2014

212 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-492. Re%"traton

A #on#te' "e offen'er "ha!! re%"ter (efore #o&!etn% a r"on"enten#e, or wthn three 'a+" of (en% "enten#e' f no &r"on&ent "re?)re', n the )r"'#ton n wh#h he " #on#te' an' "ha!! K$ee the

re%"traton #)rrent, n ea#h )r"'#ton where the offen'er re"'e", wherethe offen'er " an e&!o+ee, an' where the offen'er " a "t)'ent.L ;9 Anoffen'er ha" three 'a+" to notf+ ea#h )r"'#ton f ther na&e, re"'en#e,e&!o+&ent, or "t)'ent "tat)" #han%e".:0 Fa#h )r"'#ton &)"t thenK&&e'ate!+L notf+ a!! other )r"'#ton" n wh#h the offen'er "re?)re' to re%"ter #han%e".:1 If the offen'er fa!" to #o&!+ wth the"e%)'e!ne", ea#h )r"'#ton " re?)re' )n'er the A'a& 5a!"h A#t to haea !aw that ena!e" h& wth &r"on&ent of at !ea"t one +ear. :2 The A#ta!"o &o"e" ) to twent+ +ear" n r"on for not re%"tern% n a t&e!+fa"hon.:3

D)rn% re%"traton, the "e offen'er " re?)re' to ro'e the fo!!own%

nfor&aton- 1B a!! a!a"e"P 2B o#a! e#)rt+ N)&(erP 3B a''re"" of ea#hre"'en#e of the offen'erP 4B na&e an' a''re"" of e&!o+erP B na&e an'a''re"" of an+ !a#e the "e offen'er " a "t)'ent or w!! (e a "t)'entP an'6B !#en"e !ate n)&(er an' 'e"#rton of the eh#!e the "e offen'eroerate".:4 The )r"'#ton " then re?)re' to &a$e th" nfor&atonrea'!+ aa!a(!e to the )(!# n an on!ne "e offen'er re%"tr+. : Th"re%"tr+ &)"t n#!)'e- 1B a h+"#a! 'e"#rton of the "e offen'erP 2B the#r&na! offen"eP 3B #r&na! h"tor+ of the "e offen'er, n#!)'n% a!!'ate" of arre"t an' #on#ton", an' the "tat)" of aro!e, ro(aton or")er"e' re!ea"eP 4B a #)rrent hoto%rah of the "e offen'erP Bfn%errnt" an' a!& rnt"P 6B DNA "a&!eP an' ;B a #o+ of theoffen'er" 'rer" !#en"e.:6

The A'a& 5a!"h A#t a!"o eten'" the n)&(er of +ear" a "e offen'er&)"t re%"ter.:; A ter one "e offen'er &)"t $ee re%"traton #)rrent for

;9 . Id. << 113aB*(B, 120 tat. at 93*94.:0 . Id. < 113#B, 120 tat. at 94.:1 . Id.:2 . Id. < 113eB, 120 tat. at 94.:3 . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, 120

tat. 9;P 7a&e!a A. Ma#!ean, Lack of 7uidance on 3.&. &e0 Offende" Ru%es, NAT8 8..,

et. 2, 2006, at 4. The re%"traton re?)re&ent" (+ th" A#t #o)!' o!ate the Con"tt)ton,

a" 5!!a& . E)#$&an "a'- Ko&e "tate" %e offen'er" 10 'a+" to re%"ter, rather than

fe )n'er new fe'era! ter&". The )re&e Co)rt ha" r)!e' that the fe'era! %oern&ent

#annot tr)& "tate re"on"(!t+ n "o&e area". Th" #o)!' er+ we!! (e one ")#h area.L Id.

:4 . < 114aB, 120 tat. at 94.: . Id. < 114(B, 120 tat. at 9.:6 . Id.:; . &ee id. < 11, 120 tat. at 9.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 213ffteen +ear", wh!e a ter two offen'er &)"t re%"ter for twent+*fe +ear".::

The re%"traton ero' for a ter three offen'er " the ')raton of h" !fe. :9

The on!+ oort)nte" a "e offen'er ha" to re')#e the n)&(er of +ear" ofre%"traton " (+- 1B not (en% #on#te' of an+ offen"e for wh#h

&r"on&ent for &ore than one +ear &a+ (e &o"e'P 2B not (en%#on#te' of a "e offen"eP 3B #o&!etn% ")er"e' re!ea"e, aro!e or ro(atonP an' 4B (+ #o&!etn% the arorate "e offen'er treat&ent ro%ra& re?)re' (+ the )r"'#ton or the "tate" Attorne+ Genera!.90 If ater one offen'er #o&!e", h" re%"traton ero' #an (e re')#e' (+ fe+ear".91 A ter three offen'er #an re')#e a !fet&e of re%"traton to twent+*fe +ear" f the offen'er $ee" a #!ean re#or' for a!! twent+*fe +ear".92

Moreoer, the A'a& 5a!"h A#t re?)re" offen'er" to ero'#a!!+aear n er"on for )'ate' hoto%rah" an' erf#aton of nfor&aton.93

The A#t "et" a &n&)& t&e ero' for wh#h a )r"'#ton &)"t re?)reoffen'er" to er"ona!!+ erf+ nfor&aton.94 or ea&!e, a ter oneoffen'er " Kre?)re' to (e re%"tere' not !e"" fre?)ent!+ than . . . ea#h+ear,L9 wh!e ter two an' ter three offen'er" are re?)re' to re%"ter at!ea"t eer+ " &onth" an' three &onth", re"e#te!+.96 Eefore (en%re!ea"e', "e offen'er" &)"t (e notfe' of the re?)re&ent to re%"ter an'&)"t ")("e?)ent!+ "%n a for& "a+n% that the+ )n'er"tan' that ')t+.9;

The nfor&aton %en (+ the "e offen'er &)"t (e !a#e' on theInternet (+ the )r"'#ton Kn a &anner that " rea'!+ a##e""(!e to a!! )r"'#ton" an' to the )(!# . . . .L9: The "te &)"t f)n#ton n ")#h a wa+that an n'')a! #an t+e n a #o'e an' re#ee nfor&aton on a!! theoffen'er" wthn that area.99 oweer, there are &an'ator+ an' otona!nfor&aton ee&ton" that #annot (e !a#e' on the Internet for )(!#ew.100 The &an'ator+ ee&ton" n#!)'e- 1B the 'entt+ of the "eoffen"e #t&P 2B the o#a! e#)rt+ N)&(er of the "e offen'erP 3B an+arre"t of the "e offen'er that '' not re")!t n #on#tonP an' 4B an+ other

nfor&aton the Attorne+ Genera! ee&t".101 The otona! nfor&aton that

:: . Id. < 11aB, 120 tat. at 9.:9 . Id.90 . Id. < 11(B, 120 tat. at 9.91 . Id.92 . Id. < 11(B2B, 120 tat. at 9.93 . Id. < 116, 120 tat. at 9.94 . Id.9 . Id.96 . Id.9; . Id. < 11;, 120 tat. at 9*96.

9: . Id. < 11:aB, 120 tat. at 96.99 . Id.100 . Id. << 11:(B * #B, 120 tat. at 96.101 . Id. < 11:(B, 120 tat. at 96.



YOUNG MACRO 3/6/2014 3/6/2014

214 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49a )r"'#ton &a+ 'e#'e to ee&t fro& the re%"tr+ n#!)'e"- 1Bnfor&aton a(o)t a ter one "e offen'er f the offen"e wa" not a%an"t a&norP 2B the na&e of an e&!o+er of the "e offen'erP 3B the na&e of ane')#atona! n"tt)ton where the "e offen'er " a "t)'entP an' 4B other

nfor&aton the Attorne+ Genera! "ee" ft to ee&t.

102

3. Notf#aton

The A'a& 5a!"h A#t n#ororate" the Me%an N#o!e Jan$a an'A!ean'ra N#o!e Qa Co&&)nt+ Notf#aton 7ro%ra&.103 Th" ro%ra&re?)re" a )r"'#ton to ro'e )'ate' re%"tr+ nfor&aton to theAttorne+ Genera!, who )'ate" the Natona! e Offen'er Re%"tr+.104

Re%"tr+ nfor&aton &)"t (e %en to arorate !aw enfor#e&ent, "#hoo!,an' )(!# ho)"n% a%en#e" n area" where ether the n'')a! re"'e", "an e&!o+ee, or " a "t)'ent.10 Fer+ )r"'#ton &)"t ro'e an+ a%en#+re"on"(!e for #on')#tn% e&!o+&ent*re!ate' (a#$%ro)n' #he#$", a!on%wth "o#a! "er#e entte" re"on"(!e for rote#tn% &nor" n the #h!'

we!fare "+"te&, wth #)rrent nfor&aton on "e offen'er".106

8a"t!+,nfor&aton &)"t (e %en to o!)nteer or%anaton" n wh#h #onta#t wth&nor" or other )!nera(!e n'')a!" &%ht o##)r, an' to an+or%anaton, #o&an+ or n'')a! who re?)e"t" ")#h notf#aton )r")ant to ro#e')re" e"ta(!"he' (+ the )r"'#ton.10; In a##or'an#ewth th" "e#ton, or%anaton" or n'')a!" #an re?)e"t nfor&atoneer+ fe 'a+".10:

D)e to the 'en"t+ of nfor&aton, )r"'#ton" &)"t #ontn)a!!+ )'atether own 'ata(a"e" n a''ton to notf+n% other )r"'#ton", #o&ane","#hoo!" an' or%anaton".109 The fa#t that an n'')a! or or%anaton #anre?)e"t an )'ate of nfor&aton eer+ fe 'a+" #reate" a hea+ an' t&e*#on")&n% ()r'en on the )r"'#ton.110 It " the re"on"(!t+ of the

Attorne+ Genera! to #o&!ete the fr"t er"on of "oftware to ")ort on!nere%"tre" that #o&!+ wth the A'a& 5a!"h A#t.111 The Attorne+ Genera!wa" %en )nt! 200: to #o&!ete th" "oftware, an' )r"'#ton" hae one+ear to &!e&ent on!ne re%"tre" n ther area".112

102 . Id. < 11:#B, 120 tat. at 96.103 . Id. < 121, 120 tat. at 9;.104 . Id. < 121(B, 120 tat. at 9;.10 . Id.106 . Id.10; . Id.10: . Id. < 121#B, 120 tat. at 9;.

109 . Id. < 121, 120 tat. at 9;.110 . &ee id.111 . Id. < 123, 120 tat. at 9:.112 . Id. << 123*24, 120 tat. at 9:.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 21I>. 5AT TF 7UE8IC DOF NOT FAR - TF NFGATI>F IM7ACT O 7RF>IOU TATUTF ON CI8DRFN CON>ICTFD O F OFNF

The A'a& 5a!"h A#t "e#f#a!!+ n#!)'e" #h!'ren fo)rteen an' o!'ern "e offen'er !aw".113 To )n'er"tan' how 'etr&enta! th" A#t w!! (e on

#h!'ren, t " he!f)! to "ee how reo)", !e"" n#!)"e !aw" hae har&e'#h!'ren a!rea'+.

A. C)rrent tate 8aw"

5hen Me%an" 8aw wa" ena#te' n the &'*1990", &an+ "tate" wenta(oe an' (e+on' the (a"# re?)re&ent" 'efne' n the A#t.114 The A#twa" a&(%)o)" a" to whether )en!e" were n#!)'e' )n'er the ro"on",an' "tate" are' n ther n#!)"on n "tate*"e#f# "tat)te". 11 New er"e+wa" one of &an+ "tate" that not on!+ n#!)'e' #h!'ren fo)rteen an' a(oe, ()t a!"o n#!)'e' a!! Ker"on" #on#te' of "e offen"e" n )en!e#o)rt . . . LP116 a "tan'ar' far &ore n#!)"e than that wh#h " re?)re')n'er the A'a& 5a!"h A#t.11; New er"e+ f)rther ro'e' that K)en!e

#on')#t "ho)!' (e #!a""fe' (+ the "a&e #rtera an' "#ore" a" a')!t#on')#t.L11: Th" &ean" that een f the"e #h!'ren are tre' n )en!e#o)rt, the+ w!! (e )'%e' a" a')!t".

The New er"e+ !aw affe#te' a twe!e*+ear*o!' (o+, .G., who wa" tenwhen he a!!e%e'!+ #o&&tte' two #o)nt" of Kfr"t*'e%ree "e)a! a""a)!t.L119

The #har%e" were then a&en'e', a" the ro"e#)ton e!ane', Kto a!!e%e#on')#t that, f #o&&tte' (+ an a')!t, wo)!' #on"tt)te "e#on'*'e%ree"e)a! a""a)!t . . . .L120 .G. !e' %)!t+ to "e#on'*'e%ree "e)a! a""a)!t,'efne' a" Kan a#t of "e)a! enetraton wth another er"on . . . =whereH=tHhe a#tor )"e" h+"#a! for#e or #oer#on, ()t the #t& 'oe" not ")"tan"eere er"ona! n)r+.L121 e wa" re!ea"e' on ro(aton an' wa" re?)re'to %o thro)%h a ro%ra& $nown a" Ka&!+ Growth.L122 It wa" reorte' to

the #o)rt that .G. wa" 'on% er+ we!!.123 oweer, after "teen &onth"on ro(aton, he wa" "ere' wth a not#e that, K)r")ant to Me%an" 8aw,he ha' (een #!a""fe' n ter two a" a &o'erate r"$ offen'er.L 124 Th"

113 . Id. < 111, 120 tat. at 91.114 . &ee /ene"a%%y QIMRING, sup"a note Frror- Referen#e "o)r#e not fo)n', at *6.11 . &ee /ene"a%%y Me%an" 8aw, 42 U..C. < 13;01 1996B.116 . QIMRING, sup"a note 33, at 6.11; . &ee /ene"a%%y A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No.

109*24:, 120 tat. :;.11: . QIMRING, sup"a note 33, at 6.119 . In "e Re%"trant .G., ;;; A.2' :91, :94 N.. 2001B.120 . Id.

121 . Id.122 . Id.123 . Id. at :96.124 . Id.



YOUNG MACRO 3/6/2014 3/6/2014

216 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49#!a""f#aton wa" (a"e' on h" %)!t+ !ea of enetraton. 12 It wa" !$e!+that .G. '' not f)!!+ #o&rehen' what enetraton &eant (e#a)"e h" r&ar+ !an%)a%e wa" an"h an' he wa" on!+ e!een at the t&e.126 .G."#o)n"e!or "tate'-

In #on#!)"on, .G. " an a'o!e"#ent who !e' %)!t+ to a "e)a! a""a)!taro&ate!+ fo)r +ear" a%o when he wa" e!een +ear" of a%e. At that

t&e, he #!ear!+ '' not hae an )n'er"tan'n% of what a "e)a! a""a)!t

#on"tt)te', what wa" no!e' n a "e)a! a#t, the &a#t that th" t+e

of (ehaor #o)!' hae on #h!'ren, nor wa" he a(!e to re!ate, n wor'",

what ha' o##)rre' (etween he an' h" #t&". It ha" a!"o (een

'eter&ne', wth a re#o%ne' 'e%ree of #ertant+ wthn &+ fe!' of

#o)n"e!n%, that he '' not #o&&t an a#t of enetraton a" he a'&tte'

to n #o)rt an' to wh#h he wa" ")("e?)ent!+ a')'#ate'.12;

Un'er Me%an" 8aw, the D"tr#t Attorne+ n th" #a"e "o)%ht to notf+a!! )(!# "#hoo!" an' 'a+ #are #enter" a(o)t the otenta! 'an%er of .G.12:

The 'efen"e #o)n"e! o(e#te' (+ e!ann% that a!tho)%h .G. ha' !e'

%)!t+, he neer enetrate' h" #o)"n.129 )'%e ten re#o%ne' that the!e%"!at)re '' not #!ear!+ 'efne how Me%an" 8aw a!e' to )en!e"an' o"te' that the re"on"(!t+ (e!on%e' to the #o)rt n the nter&-

=THo re#on#!e the ean"e ro"on" of Me%an" 8aw, ena#te' n

1994, to rote#t the )(!# fro& "e offen'er" who re"ent a "%nf#ant

r"$ of reoffen'n%, wth the ro"on" of the )en!e Co'e, ena#te' (+

the 8e%"!at)re n 19:2, that en#o&a"" n)&ero)" rote#ton" for

)en!e", e"e#a!!+ tho"e )n'er a%e fo)rteen, 'e"%ne' to rote#t ther

#onf'enta!t+, "e#)re ther reha(!taton, an' n")!ate the& fro& the

#r&na! )"t#e "+"te&.130

The )ro"e of #reatn% the )en!e )"t#e "+"te& wa" to re#o%ne that#h!'ren are "t!! %rown% an' ther ten'en#e" an' er"ona!te" are "t!!#han%n%.131 Me%an" 8aw, an' other !$e "tat)te", a"")&e that ana'o!e"#ent" "e)a! #on')#t " fe' an' " an n'#aton of "&!ar f)t)rea#t".132 oweer, th" " not a!wa+" the #a"e. )'%e ten e!ane' n the.G #a"e-

5ere =the #o)rtH wrtn% on a #!ean "!ate, o)r n#!naton wo)!' (e to

e#!)'e )en!e" )n'er a%e fo)rteen fro& the "ween% ro"on" of

Me%an" 8aw. In &an+ n"tan#e", "e)a!!+ &roer (ehaor (+ ")#h

12 . &ee id. at :96*9;.126 . &ee id. at :9:.12; . Id. at :9;.12: . Id. at :96.

129 . &ee id.130 . Id. at 913.131 . QIMRING, sup"a note 33, at 6.132 . Id.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 21;+o)n% #h!'ren " &ore a ref!e#ton of na'e?)ate a')!t ")er"on,

&&at)rt+, narorate &e'a eo")re, or a ror h"tor+ of

e&otona! a()"e than t " of rre&e'a(!e "e)a!!+ re'ator+

n#!naton". Reeat offen'er" wo)!' re"ent &ore "ero)" #on#ern", ()t

the ro"on" of the )en!e Co'e a)thorn% notf#aton to the

#o)nt+ ro"e#)tor, !o#a! o!#e, an' "#hoo! off#a!" are 'e"%ne' for

+o)n% #h!'ren who &a+ o"e a r"$ to other".133

The fo!!own% ?)e"ton re&an"- how #an the "+"te& 'eter&ne who&a+ or &a+ not o"e a r"$ to other"

Mo"t "tat)te" are (a"e' on the a"")&ton that "e offen'er" are at ah%h r"$ of reoffen'n%.134 In 199:, I'aho a""e' the e)a! Offen'erRe%"traton, Notf#aton, an' Co&&)nt+ R%ht*to*Jnow A#t wh#hfo#)"e' on a')!t "e offen'er".13 Q&rn% ar%)e" that th" A#t wa" re&"e' on the Ka"")&tonL that a')!t "e)a! offen'er" were !$e!+ to re*offen' an' that ro'n% nfor&aton to arent" wo)!' a!!ow the& to rote#t ther #h!'ren.136 A!on% wth th" "tat)te, I'aho a""e' an e?)a!ent

"tat)te for )en!e".

13;

At the (e%nnn% of (oth the a')!t A#t an' the )en!e A#t, the !e%"!aton e!ane' n the fn'n%" "e#ton" wh+ the!e%"!ator" ena#te' the"e A#t".13: The fn'n%" "e#ton" e!an that "eoffen'er" hae a h%h r"$ of re*offen'n% an' that the A#t" a!!ow" !awenfor#e&ent to arehen' offen'er" ?)#$!+ an' a!!ow" the )(!# to rote#t the&"e!e" thro)%h a##e"" to nfor&aton on the offen'er".139 Thea')!t an' )en!e "e offen'er a#t" are 'ent#a!, wth the e#eton of on!+"een wor'". In the )en!e a#t, the wor' K)en!eL aear" fo)r t&e" nfront of the ter& K"e*offen'er.L140 The other three wor'" for& the hra"eKor a')'#ate' 'e!n?)entL an' are !a#e' n front of the wor'K#on#te'.L141 The"e "tat)te" 'e&on"trate the ten'en#+ to treat a')!t an' )en!e "e offen'er" e?)a!!+ wtho)t #on"'ern% whether Ka%e,eeren#e, or (o!o%+ of #h!'ren an' a'o!e"#ent" &a$e" ther "e)a! (ehaor "%nf#ant!+ 'fferent fro& that of a')!t".L142 The rea!t+ " thatre"ear#h "how" )en!e" are er+ 'fferent fro& a')!t" when t #o&e" to

133 . In "e Re/ist"ant (.7., ;;; A.2' at 913*14.134 . QIMRING, sup"a note 33, at 11 "tre""n% the wor' Ka"")&tonL n"tea' of Kfa#tL

(e#a)"e the re"ear#h 'oe" not roe th" to (e tr)eB.13 . IDAO CODF A NN. < 1:*:302 200;B.136 . QIMRING, sup"a note 33, at 11.13; . &ee )en!e e Offen'er Re%"traton, Notf#aton, an' Co&&)nt+ R%ht*to*

Jnow A#t, IDAO CODF A NN. < 1:*:402 200;B.13: . Id. < 1:*:402.139 . Id. << 1:*:302, 1:*:402.140 . QIMRING, sup"a note 33, at 11 #o&arn% the Kfn'n%"L "e#ton" of I'aho Co'e<< 1:*:302 an' 1:*:402B.141 . Id .142 . Id.



YOUNG MACRO 3/6/2014 3/6/2014

21: CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49&ote, 'an%er an' re#'"& rate".143

The ro(!e&" wth the I'aho "tat)te #ontn)e (e+on' the fn'n%""e#ton". Eoth the a')!t an' )en!e "tat)te" !"t the ea#t "a&e offen"e"that re?)re re%"traton.144 An a#t that #an (e #on"'ere' a #r&e when

eretrate' (+ an a')!t "ho)!' not a!wa+" (e #on"'ere' a #r&e when#o&&tte' (+ a )en!e. The ro(!e& wth )n"hn% )en!e" an' a')!t"for the "a&e a#t" " the nherent )nfarne"" to )en!e". or ea&!e, theI'aho Co'e )n"he" (oth a')!t" an' #h!'ren for K8ew' Con')#t wth aMnor Ch!' )n'er teen.L14 Th" "e#ton "tate" that an+ er"on@a')!tor &nor@who #o&&t" an+ K!ew' or !a"#o)"L146 a#t" on or wth a&nor )n'er the a%e of "teen wth the ntent of Karo)"n%, aea!n% to, or%ratf+n% the !)"t or a""on" or "e)a! 'e"re" of ")#h er"on . . .L "ho)!' (e fo)n' %)!t+ of a fe!on+ an' &r"one'.14;

Th" #r&e, een n the )en!e "tat)te, 'oe" not 'efne an+ !&taton".or ea&!e, )n'er th" !aw, two fo)rteen*+ear*o!'" who #on"en")a!!+en%a%e n a re!aton"h, whether "e)a! or )"t Khea+ ettn%,L are (oth

%)!t+ )n'er I'aho !aw of a fe!on+, &a+ fa#e &r"on&ent, an' arere?)re' to re%"ter a" "e offen'er" )nt! at !ea"t a%e twent+*one. 14: Th""tat)te #o)!' a!"o (e nterrete' to &ean that an+ er"on )n'er the a%e of"teen who &a"t)r(ate" " #o&&ttn% !!e%a! or K!ew'L a#t" )on a&nor.149 There " no ro"on that "tate" the #t& an' the offen'er &)"t (e two 'fferent eo!e.10

tat)te", a" 'e&on"trate' (+ the I'aho !aw, are "o&et&e" oer!+ (roa'an' #arr+ ne%ate &!#aton" for #h!'ren. Th" ra"e" ?)e"ton" a" towhether "tat)te" that are oer!+ (roa' are nonethe!e"" (enef#a! to the )(!#. +othet#a!!+, f eer+ "tate a""e' a "tat)te ")#h a" th" one, an'the "tate #r&na!!+ #har%e' a!! teena%er", who (efore the a%e of "teento)#he' another n'')a! Kwth the ntent of aro)"n% . . . ")#h er"on,L 11

the re%"tr+ "+"te& wo)!' (e f!oo'e' wth eo!e who were not 'an%ero)"to "o#et+. Mantann% a re%"tr+ "+"te& that fa!" to 'fferentate (etween

143 . Id .144 . Id.14 . IDAO CODF A NN. < 1:*10: 200;B.146 . Id . K8ew' an' !a"#o)"L a#t" a" 'efne' (+ th" Co'e n#!)'e ()t are not !&te'

to K%enta!*%enta! #onta#t, ora!*%enta! #onta#t, ana!*%enta! #onta#t, ora!*ana! #onta#t,

&an)a!*ana! #onta#t, or &an)a!*%enta! #onta#t, whether (etween er"on" of the "a&e or

oo"te "e . . . .L Id.14; . Id . "tatn% that the ter& of &r"on&ent "ha!! not (e for &ore than !feB.14: . QIMRING, sup"a note 33, at 13.149 . Id .10 . Id. KThere " no ere"" re?)re&ent n < 1:*10: that #t& an' offen'er &)"t

(e 'fferent er"on", a!tho)%h I wo)!' hoe an a#t"t )'%e &%ht &o"e an nterer"ona!

re?)re&ent on the (roa' !an%)a%e of the "tat)te.L Id.P see IDAO CODF A NN. < 1:*10:

200;B.11 . IDAO CODF A NN. < 1:*10: 200;B.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 219an nno#ent er"on an' one who " a#t)a!!+ 'an%ero)" 're#t!+ #ontra'#t"the )n'er!+n% )ro"e of the )(!# notf#aton an' re%"tr+ "+"te&. Nonethe!e"", I'aho !aw " "een a" han% a (etter aroa#h to )en!e"e)a! #on')#t than other "tate" (e#a)"e the !aw er&t" &o"t )en!e

offen'er" to re&oe ther na&e" fro& the re%"tr+ "+"te& (+ a%e twent+*one.12 oweer, I'aho &a+ no !on%er (e a(!e to re&oe )en!e" fro& there%"tr+ "+"te& (+ a%e twent+*one "n#e the %)'e!ne" n the A'a& 5a!"hA#t re?)re that a!! "e offen'er" a(oe the a%e of fo)rteen "ta+ on there%"tr+ for a &n&)& of ten +ear".13

E. Chan%e" n 8aw

Man+ "tate" n the a"t +ear hae ntro')#e' new !e%"!aton #han%n%ther )en!e "e offen'er !aw".14 In e(r)ar+ 2006, New Yor$ ntro')#e'an a""e&(!+ (!! that wo)!' &a$e )en!e "e offen'er" who are a%ethrteen or o!'er ")(e#t to the "tate "e offen'er re%"tr+.1 M""""ntro')#e' a (!! n the enate, wh#h wo)!' re?)re fr"t*t&e )en!e "e

offen'er" to re%"ter wth the Deart&ent of 7)(!# afet+ e Offen'erRe%"ter .16 The (!! wo)!' &a$e the re#or'" of an+ )en!e #on#te' for afr"t*t&e "e offen"e )(!#.1; 7reo)"!+ n M"""", re%"traton an' )(!# re#or'" on!+ a!e' to reeat )en!e offen'er".1: &!ar!+, aho)"e (!! ntro')#e' n Iowa wo)!' re?)re )en!e re#or'" to (e &a'e )(!# when the )en!e re%"ter" a" a "e offen'er.19 A''tona!!+, n200, >r%na aroe' a (!! that wo)!' a!!ow the #o)rt, n t" '"#retonan' )on the &oton of the ro"e#)tor, to re?)re a )en!e oer the a%e ofthrteen to re%"ter.160

The rea! ?)e"ton here " whether a!! of the o!' !aw" reente're#'"& n ")#h a wa+ that ")%%e"t" to the !e%"!at)re" that new "tr#ter!aw" 'ea!n% wth "e offen'er", the "e offen'er re%"tr+, an' "e offen'er

notf#aton, wo)!' (e (enef#a!.>. DFTFRMINING 5IC U>FNI8F R F*OFND

The ero' (etween the ena#t&ent of Me%an" 8aw an' the ena#t&ent ofthe A'a& 5a!"h A#t wa" an 'ea! t&e for the !e%"!ator" to ta$e note of

12 . QIMRING, sup"a note 33, at 13.13 . A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:, <

11(B2B, 120 tat. at 9.14 . &ee /ene"a%%y 8n'a A. +&an"$, Additiona% ,oints of Inte"est , 3: U>. AM.

8. DIG. 6 )ne 2006B.1 . Id. #tn% N.Y. A""e&. E. 992, 22:th 8e%. ntro')#e' N.Y. 200BB.16 . Id. #tn% M"". .E. 23;3, 2006 8e%. M"". 2006BB.

1; . Id. #tn% M"". .E. 23;3, 2006 8e%. M"". 2006BB.1: . Id. #tn% M"". .E. 23;3, 2006 8e%. M"". 2006BB.19 . Id. #tn% Iowa . !e No. 2114, :1"t Gen. A""e&., 1"t e"". Iowa 200BB.160 . Id. #tn% >a. .E. 231:, 2006 8e%. >a. 200BB.



YOUNG MACRO 3/6/2014 3/6/2014

220 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49whether the"e !aw" a#t)a!!+ &a'e a 'fferen#e on re#'"& rate". D)rn%th" t&e, a%e re?)re&ent" for "e offen'er re%"traton an' notf#atonare' a&on% the "tate".161 t)'e" #o)!', an' "ho)!', hae (een #on')#te'ea&nn% whether the "tate" wth "tr#ter !aw" ha' a !ower n)&(er of "e

offen'er" an' a !ower er#enta%e of re#'"&.

162

No ")#h "t)'e" were#on')#te'.163 7"+#hatr"t", !e%"!ator", an' the )(!# "t!! 'o not $now the#hara#ter"t#" of offen'er" or offen"e" that are a""o#ate' wth tho"e whore*offen'.164 The effe#t of treat&ent ro%ra&" on re#'"& rate" " a!"o)n$nown.16 A ro%re""e (rea$thro)%h n )n'er"tan'n% )en!e "eoffen'er" wo)!' (e to #o!!e#t 'ata 'o#)&entn% re*arre"t an' re#on#tonrate".166 It " ?)te "ho#$n% that a "+"te&, wh#h oer the a"t twent+ +ear"ha" #ontn)a!!+ to)%hene' the )en!e "e offen'er "+"te&, ha" neerta$en the t&e or the &one+ to 'o "&!e re"ear#h to 'eter&ne f )en!e"e offen'er" are 'an%ero)".16; In"tea', !e%"!ator" hae re!e' on a')!t&o'e!" an' ro(a(!te", an' !$e I'aho, hae tran"ferre' 'ea" an' !aw" to )en!e".16: a!f of a')!t "e offen'er" reort that ther #r&na! "e)a! (ehaor "tarte' n a'o!e"#en#eP howeer, th" " not roof that a')!toffen'er" who were #!a""fe' a" "e offen'er" n )en!e #o)rt" wo)!' re*offen'.169

One of the rea"on" there " a rofo)n' 'fferen#e (etween a')!t an' )en!e "e offen'er" " ther oort)nt+ to "e)a!!+ ere""the&"e!e".1;0 A" Q&rn% e!an"-

5hen ffteen*+ear*o!'" &o"e the&"e!e" "e)a!!+ on +o)n%er

#h!'ren, the+ )")a!!+ are not ref!e#tn% a "e)a! orentaton that

"tron%!+ refer" re)(e"#ent tar%et", "o a (roa'er "et of "e)a!

oort)nte" a" the a'o!e"#ent &at)re" w!! re')#e the re"")re to

ere"" "e)a! nee'" on for(''en tar%et" or n wa+" otherw"e

roh(te' (+ the #r&na! !aw.1;1

5hen a er"on " ffteen t " !$e!+ h" "e)a! a#t" w!! (e #on'e&ne'.tate" 'ffer n ther #on"en")a! "e !aw", wth "o&e treatn% th" (ehaor

161 . &ee /ene"a%%y +&an"$, sup"a note Frror- Referen#e "o)r#e not fo)n'.162 . QIMRING, sup"a note 33, at 11:.163 . Id.164 . Id. 16 . Id.166 . Id.16; . Id. at 119 e!ann% that " #o&&on!+ $nown that K&o"t )en!e "e offen'er"

nether re*offen' "e)a!!+ wh!e n the )en!e "+"te& nor (e#o&e #hron# "e offen'er" a"

a')!t"LB.

16: . Id. 169 . Id. at 121.1;0 . Id. at 120.1;1 . Id.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 221a" K#r&na!L an' other" a" K&ora!!+ wron%.L1;2

The )ro"e of the A'a& 5a!"h A#t " to rote#t #h!'ren (+ nfor&n%ther arent" of a "e)a! threat.1;3 Th" #on#et "ee&" hero#, e"e#a!!+when '"#)""e' n the #ontet of a')!t offen'er" who hae a h%h

re#'"& rate.

1;4

oweer, f the )ro"e of the A#t " to rote#t #h!'ren, ()t #on#te' )en!e "e offen'er" are not rone to re*offen', " there area"on to warn the )(!#1;

The entre noton (ehn' the A'a& 5a!"h A#t, !$e Me%an" 8aw, " thatt " Ko""(!e for otenta! #t&", ther fa&!e", an' #o&&)nt+n"tt)ton" to rote#t the&"e!e" a%an"t $nown "e)a! threat"L (+ (en%nfor&e' thro)%h )(!# notf#aton an' on!ne re%"tr+ "+"te&". 1;6 Th" " (e#a)"e Kreo)"=!+H #on#te' "e offen'er" are (+ no &ean" the !ar%e"tthreat to otenta! #t&" of for#(!e rae, #h!' &o!e"taton, an' for#(!efon'!n%.L1;; Nota(!+, a %reat n)&(er of "e offen"e" no!e "o#a!a#?)antan#e" an' fa&!+ &e&(er".1;: Tho"e who re%"ter, or w!! re%"ter)n'er the A'a& 5a!"h A#t, are on!+ a er+ "&a!! orton of the "e*offen'er o)!aton.1;9 Therefore, the re%"tr+ "+"te& " rea!!+ )"t a fa!"e"e#)rt+ that har&" )en!e offen'er" &ore than t he!" the )(!#.1:0

>I. 5Y U>FNI8F OU8D R FMAIN IN U>FNI8F COURT

A. The Rea"on for )en!e Co)rt"

In the nneteenth #ent)r+, #h!'ren )n'er the a%e" of fe or " weretreate' a" roert+, wh!e tho"e o!'er than " were treate' a" K!tt!ea')!t".L1:1 The 'ee!o&ent of n')"tr+ an' )r(anaton, a!on% wth the

1;2 . &ee id.1;3 . Id. at 14.

1;4 . QIMRING FFCUTI>F UMMARY, sup"a note 30, at 1.1; . Q&rn% ont" o)t that-

=IHf there " no "tron% ten'en#+ of offen'er" to reeat the "a&e attern" of "e

#r&e, an' f other &e&(er" of the #o&&)nt+ &%ht (e te&te' to #o&&t the

"e)a! (ehaor that " the #ore of the #)rrent offen"e, then the !"t of ror "e

offen'er" w!! roe !e"" eff#ent n "o!n% new offen"e".

QIMRING, sup"a note 33, at 14.1;6 . Id.1;; . Id. at 146.1;: . Id.1;9 . Id.1:0 . &ee UMAN R IGT 5ATC ' NO FAY A N5FR, F OFNDFR 8A5 IN TF

U 4 200;B, a$ai%a2%e at htt-//www.hrw.or%/reort"/200;/)"090;/)"090;we(w#oer.'f

KA 1999 "t)'+ a(o)t Ma""a#h)"ett" "e offen'er re%"tr+ "howe' that of the 136 new "e

#r&e" n a art#)!ar )r"'#ton, on!+ " were #o&&tte' (+ n'')a!" !"te' on a o!#e

re%"tr+.LB #taton o&tte'B.1:1 . Ern$, sup"a note Frror- Referen#e "o)r#e not fo)n', at 1:*9.



YOUNG MACRO 3/6/2014 3/6/2014

222 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49'ea" of e')#aton an' "o#a!aton of #h!'ren, !e' to refor&atore" that'ea!t wth '"#!nn% #h!'ren.1:2 In the !ate nneteenth #ent)r+, "eera! )r"'#ton" n 'fferent "tate" &!e&ente' "earate ro#e')re" for#r&na! tra!" of )en!e".1:3 The fr"t )en!e #o)rt wa" e"ta(!"he' n

1:99, an' (+ the ear!+ twenteth #ent)r+, near!+ eer+ "tate ha' e"ta(!"he'a "earate )en!e )"t#e "+"te&.1:4

Ea"e' on the noton that #h!'ren were not a" &at)re a" a')!t", the )en!e #o)rt" 'ee!oe' a aterna!"t# aroa#h towar' )en!eoffen'er", there(+ e"ta(!"hn% the #on#et of "earate #orre#tona!fa#!te" that fo#)"e' on e')#atona! an' o#atona! trann%. 1: Cr&na!re#or'" were not &a'e )(!# Kn or'er to reent "t%&ataton that &%htnterfere wth ")##e""f)! reha(!taton.L1:6 Unt! the 1960", )en!e #o)rt"'' not affor' offen'er" the "a&e ro#e')ra! "afe%)ar'" a" a')!t" ')rn%tra!.1:;

Mo'ern )r"r)'en#e '"tn%)"he" )en!e" fro& a')!t" an' re#o%ne"ther "earate offen"e".1:: or n"tan#e, the Mo'e! 7ena! Co'e 'efne"

)en!e" a" tho"e )n'er the a%e of e%hteen, an' ro'e" for a #a"e*(+*#a"e )'#a! waer for #h!'ren a%e' "teen to e%hteen that a!!ow"tran"fer" to a')!t #r&na! #o)rt.1:9 There " a #)rrent tren' to tr+ )en!e"a" a')!t" (e#a)"e of the er#eton that there " an n#rea"n% n)&(er ofo!ent an' "ero)" #r&e" (en% #o&&tte' (+ )en!e".190 The rea!t+ "that the n)&(er of #r&e" a&on% )en!e", e"e#a!!+ o!ent #r&e", ha"'e#rea"e' or "ta+e' the "a&e oer the a"t twent+*fe +ear".191 De"teth" fa#t, "tate" are (e%nnn% to ta$e a )nte aroa#h wth re%ar' to )en!e #r&e.192

There are two t+e" of )n"h&ent- #orre#te an' #on"e?)enta!.193

"tor#a!!+, )en!e" hae (een )n"he' to reha(!tate an' #orre#t ther

1:2 . Id. at 19.1:3 . Id. Coo$ Co)nt+, I!!no" e"ta(!"he' the fr"t )en!e #o)rtB.1:4 . Id.1: . Id.1:6 . Id.1:; . Id. at 19. &ee /ene"a%%y In "e 5n"h, 39; U.. 3: 19;0BP In "e Ga)!t, 3:;

U.. 1 196;B.1:: . Ern$, sup"a note Frror- Referen#e "o)r#e not fo)n', at 160.1:9 . Id.P MODF8 7FNA8 CODF < 4.10 #&t". 1 3.190 . Ern$, sup"a note , at 160.191 . Id. at 161 KThe )en!e orton of a!! arre"t" for "ero)" o!ent #r&e n 199:

wa" a(o)t aera%e for the ro#ee'n% twent+*fe +ear", wh!e the er#enta%e of roert+

#r&e arre"t" no!n% )en!e" ha" a#t)a!!+ 'e#!ne' thro)%ho)t &o"t of th" ero'.L

?)otn% 7atr#a A!!ar' Ma!#o!& Yo)n%, ,"osecutin/ (u$eni%es in Adu%t C"imina% Cou"t

,e"specti$es fo" ,o%icymake"s 8 ,"actitione"s, TF FNTFNCING 7ROFCT 2002B,htt-//www."enten#n%roe#t.or%/'f"/20;9.'fBB.192 . Id. at 161.193 . Id. at 16.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 223 (ehaor, ena(!n% the& to re*enter the #o&&)nt+ to !e a nor&a! !fe.194

A')!t" hae (een )n"he' #on"e?)enta!!+, ")#h that the+ are )n"he' nor'er to 'eter f)t)re #r&e.19 Tr+n% )en!e" a" a')!t" re")!t" n "enten#e" (a"e' on )nte )n"h&ent rather than reha(!taton. Ern$ e!an" that

Kthe tren' to tr+ . . . +o)n%er )en!e" a" a')!t" (a"e' "o!e!+ on the %rat+of ther #r&e" " &"ta$en an' )n)"t.L196

#entf# re"ear#h "how" that, Kthe ero' (etween twe!e an' e%hteen+ear" of a%e " a t&e of er+ "%nf#ant h+"#a!, #o%nte, an' e&otona!'ee!o&ent.L19; Eran" &at)re "!ow!+ oer t&e an' are not f)!!+'ee!oe' )nt! !ate a'o!e"#en#e.19: o&e ")%%e"t that the !ate "ta%e" of'ee!o&ent r)n thro)%h ffteen +ear" of a%e, wh!e other" (e!ee that#o%nte 'ee!o&ent o##)r" %ra')a!!+.199 Nonethe!e"", een fa'o!e"#ent" #an en%a%e n Ka')!t*!$e ro#e""e" of 'e#"on*&a$n%, the+="t!!H &a+ not rea#h the Wr%ht re")!t".L200 It " &ortant to re&e&(er that&nor" hae eer nf!)en#e" an' a 'fferent er#eton of r"$ than thera')!t #o)nterart" ')e to ther +o)n%er a%e an' a !a#$ of eeren#e.201

The !aw ew" #h!'ren 'fferent!+ n #ertan #r#)&"tan#e".202 orea&!e, there " the a%e of &aort+@e%hteen, 203 an' the a%e "o&eone#an )r#ha"e an' #on")&e a!#oho!@twent+*one.204 Do the"e ar(trar+'"tn#ton" rea!!+ &ean a er"on " &ore re"on"(!e when #on")&n%a!#oho! at a%e twent+*one "tor#a!!+, the"e are the a%e" "o#et+ ha"'eter&ne' that n'')a!" are #aa(!e of han'!n% the"ere"on"(!te".20 8$ew"e, the rea"on )en!e" are tre' n )en!e#o)rt", )n'er )en!e !aw", an' )n"he' 'fferent!+ than a')!t", " ther#aa#t+ to )n'er"tan' an' han'!e #ertan "t)aton".206

The 'fferen#e (etween the a%e" of &nort+ an' &aort+ "t!! e"twtho)t a %ra+ area n one a"e#t of the !aw@otn%.20; 5hen the Twent+*"th A&en'&ent wa" roo"e', there wa" a &aor #ontroer"+ (etweentho"e a%e' e%hteen to twent+*one who #o)!' not ote ()t #o)!' (e tre' n

194 . Id. at 19.19 . Id. at 166.196 . Id. at 1;.19; . C)nnn%ha&, sup"a note Frror- Referen#e "o)r#e not fo)n', at 2:1 ?)otn%

Ern$, sup"a note , at 1;1B.19: . Id.199 . Id. at 2:3.200 . Id. at 2:4.201 . Id .202 . Id. at 2:.203 . Id. at 2:6.

204 . Id .20 . Id. at 2:*:6.206 . Id . at 2:6.20; . Id. at 29.



YOUNG MACRO 3/6/2014 3/6/2014

224 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49a')!t #o)rt.20: The enate )'#ar+ Co&&ttee "tate', Ko)r 1:*+ear*o!'#ten" hae earne' the r%ht to ote (e#a)"e the+ (ear a!! or &o"t of ana')!t #ten" re"on"(!te".L209 C)rrent!+, &nor" a" +o)n% a" fo)rteenare (en% tre' a" a')!t" an' #arr+n% the "a&e re"on"(!te" of a')!t".

The"e #h!'ren 'o not hae the #aa(!t+ to f%ht the o!t#a! (att!e, nor anoort)nt+ to oteP +et the+ are )n"he' far (e+on' ther #aa#t+ of)n'er"tan'n%.

E. Menta! ea!th Con"'eraton"

A##or'n% to the Re"ear#h Networ$ on A'o!e"#ent Dee!o&ent an')en!e )"t#e Re"ear#h Networ$B, a !ar%e roorton of #h!'ren a%e"ffteen an' +o)n%er #har%e' wth a #r&e are not #o&etent to "tan' tra!.210

The !e%a! "+"te& ho!'" that &enta!!+ !! 'efen'ant" &)"t (e a(!e to)n'er"tan' #har%e" a%an"t the&, art#ate n ther 'efen"e, an' &a$e (a"# 'e#"on" at tra!.211 In the a"t, a!&o"t a!! 'efen'ant" fo)n' )na(!e to"tan' tra! were a')!t" wth "o&e t+e of &enta! !!ne"". 212 5th &ore

)en!e" (en% tre' a" a')!t", the ?)e"ton " ra"e' a" to whether )en!e"hae the &enta! #aa#t+ to effe#te!+ art#ate n ther tra!. 213 Un!$ea')!t", a )en!e" !a#$ of #aa#t+ " not ')e to &enta! !!ne"", ()t (+ the"heer nat)re of (en% a )en!e.214 )en!e" are not nte!!e#t)a!!+ an'e&otona!!+ &at)re eno)%h to #o&rehen' the nat)re an' #on"e?)en#e" ofther a#ton".21 Aro)n' 200,000 )en!e" are #r&na!!+ #har%e' a" a')!t"eer+ +ear.216 A##or'n%!+, ten" of tho)"an'" of a'o!e"#ent" +o)n%er than"teen are #har%e' wth a')!t #r&e", een tho)%h a "%nf#ant orton#annot f)!!+ #o&rehen' the #r&e wth wh#h the+ are #har%e'.21;

The Re"ear#h Networ$ fo)n' that one*thr' of #h!'ren a%e" e!eenthro)%h thrteen an' one*ffth of #h!'ren a%e" fo)rteen to ffteen ha' a!e%a! #o&rehen"on !ee! #o&ara(!e to &enta!!+ !! a')!t" who were

20: . Id.209 . Id. at 296 ?)otn% . COMM. ON TF UDICIARY, 8O5FRING TF >OTING AGF TO

1:, . R F7. NO. 92*26 19;1BB.210 . MACARTUR OUND. R FFARC NFT5ORJ ON ADO8FCFNT DF>. AND

U>FNI8F UTICF, MACARTUR U>FNI8F ADUDICATI>F COM7FTFNCF TUDY UMMARY

2 2003B, htt-//www.a'.or%/'own!oa'"/:#o&eten#e"t)'+")&&ar+.'f =herenafter

UMMARYH.211 . MACARTUR OUND. R FFARC NFT5ORJ ON ADO8FCFNT DF>. AND

U>FNI8F UTICF, MACARTUR U>FNI8F COM7FTFNCF TUDY 2003B, htt-//www.&a#*

a'o!'e*))"t#e.or%/a%e23.ht&! !a"t "te' Mar. 12, 200:B.212 . UMMARY, sup"a note 210, at 1.213 . Id.214 . Id. at 2.21 . Id. 216 . A'a& 8ta$, Resea"c#e"s Find Many 9oun/e" (u$eni%es Lack Competence to

&tand T"ia% as Adu%ts, N.Y. TIMF, Mar#h 3, 2003, at A1:.21; . Id.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 22fo)n' )na(!e to "tan' tra!.21: 8a)ren#e ten(er%, a rofe""or an' t)'e"Dre#tor at Te&!e Uner"t+, e!ane' that #o)rt "+"te&" "ho)!' nottran"fer #h!'ren fro& )en!e #o)rt to #r&na! #o)rt Kat 12 or 13, a" &an+"tate" 'o, (e#a)"e =the+H w!! (e eoar'n% #h!'ren.L219 The re")!t" of

the "t)'+ ")%%e"t that #h!'ren "ho)!' (e $et n )en!e #o)rt", wh#h " n're#t #onf!#t wth the A'a& 5a!"h A#t, wh#h ho!'" that "tate" &)"t )n"h +o)n% )en!e" a" the+ )n"h a')!t".220

There " a "%nf#ant 'fferen#e n #o&eten#+ !ee!" (etween a')!t"an' #h!'ren who #an "tan' tra!. In Rope" $. &immons, )"t#e OConnor"tate' n her '""ent, K)en!e" !a#$ &at)rt+ an' re"on"(!t+ an' are&ore re#$!e"" than a')!t" . . . )en!e" are &ore )!nera(!e to o)t"'enf!)en#e" (e#a)"e the+ hae !e"" #ontro! oer ther ")rro)n'n%" . . . =an'Ha )en!e" #hara#ter " not a" f)!!+ for&e' a" that of an a')!t.L221 or the"erea"on", "o#et+ an' the #o)rt" n A&er#a hae h"tor#a!!+ treate' )en!e" 'fferent!+ than a')!t".222 Un'er the Con"tt)ton, )en!e" haenot (een affor'e' the "a&e rote#ton" a" a')!t".223 C)nnn%ha& e!an",K=#Honte&orar+, )en!e )"t#e '"tn%)"he" )en!e" fro& a')!t" an're#o%ne" '"tn#t for&" of )en!e offen"e="H.L224 The ''n% !ne (etween a')!t" an' #h!'ren " the &enta! #aa#t+ n &a$n% 'e#"on".22

The )re&e Co)rt n Rope" he!' that t wa" )n#on"tt)tona! to ee#)tea 'efen'ant who #o&&tte' fr"t*'e%ree &)r'er (efore the a%e ofe%hteen.226 5h+ " t )n#on"tt)tona! to ee#)te a "eenteen*+ear o!' for&)r'er, wh!e t " far to re?)re a fo)rteen*+ear*o!' to re%"ter an' notf+ther #o&&)nt+ that the+ #o&&tte' "o&e t+e of "e offen"e In rea#hn%t" 'e#"on, the Co)rt fo#)"e' on the fa#t that )en!e" are )n"ta(!e an'e&otona!!+ )n(a!an#e'.22; It went on to "tate that Kfro& one %eneraton tothe net, the Con"tt)ton ha" #o&e to earn the h%h re"e#t. . . . The'o#)&ent "et" forth . . . nnoate rn#!e" or%na! to the A&er#an

21: . MACARTUR OUND. R FFARC NFT5ORJ ON ADO8FCFNT DF>. AND

U>FNI8F UTICF, MACARTUR U>FNI8F COM7FTFNCF TUDY R FU8T,

htt-//www.a'.or%/#ontent/ re!ate're"o)r#e".h#at'2a%e'2 !a"t "te' Mar.

12, 200:B.219 . 8ta$, sup"a note 216.220 . &ee /ene"a%%y A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No.

109*24:, 120 tat. :;.221 . Roer . &&on", 43 U.. 1, 9: 200B OConnor, ., '""entn%B.222 . R#har' O. Eroo$", :T#e Refu"2is#in/; Ref%ections 3pon La! and (ustice

Amon/ t#e &ta/es of Life, 4 EU. 8. R F>. 619, 620 2006B KThe 'e"%naton of

'&n"he' re"on"(!t+ for )en!e" " an ea&!e of o)r !e%a! "+"te&" ro"on of !e%a!

')te" an' &&)nte" (a"e' )on "tate" of !fe.LB.223 . Ern$, sup"a note Frror- Referen#e "o)r#e not fo)n', at 19.

224 . Id. at 160.22 . C)nnn%ha&, sup"a note Frror- Referen#e "o)r#e not fo)n', at 323*24.226 . Rope" , 43 U.. at ;:.22; . Id.



YOUNG MACRO 3/6/2014 3/6/2014

226 CRIMINAL AND CIVIL CONFINEMENT =>o!. 34-49eeren#e . . . P "e#f# %)arantee" for the a##)"e' n #r&na! #a"e"P an' (roa' ro"on" to "e#)re n'')a! free'o& an' re"ere h)&an'%nt+.L22: The 'e#"on a!"o e!ane' that the Co)rt &)"t )"e anKeo!n% "tan'ar' of 'e#en#+ to &ar$ ro%re"" of &at)rn% "o#et+ when

'eter&nn% wh#h )n"h&ent" are "o '"roortonate a" to (e W#r)e! an')n)")a!,L wthn the &eann% of the F%hth A&en'&ent roh(ton.229

)"t a" the 'eath ena!t+ to a "eenteen*+ear*o!' " K#r)e! an' )n)")a!L )n"h&ent, "o too " on!ne re%"traton an' )(!# notf#aton to tho"ea%e fo)rteen to "eenteen.

>II. CONC8UION

a#a!!+, the A'a& 5a!"h A#t aear" far an' (enef#a! for a')!t" an'#h!'ren. A" t "tate" n the na&e, t wa" ena#te' to $ee #h!'ren "afe fro&a')!t re'ator".230 oweer, h''en wthn the A#t are %)'e!ne" thatn#ororate an' )n"h the "a&e #h!'ren that the A#t nten'e' to he!. TheA#t re?)re" #h!'ren to )(!#!+ re%"ter an' notf+ ther #o&&)nte" of

ther "e offen'er "tat)", oenn% ther on#e #!o"e' re#or'" to the )(!#. Ifre?)rn% #h!'ren to re%"ter a#t)a!!+ reente' re#'"&, th" Notewo)!' 'efen' the A'a& 5a!"h A#tP howeer, )en!e "e offen'er" arenot r&e #an''ate" for re#'"&.231 The !aw that atte&t" to rote#t the )(!# an' warn of f)t)re "e offen'er" " h)rtn% the f)t)re" of #h!'renwho #o&&tte' a #r&e wth wh#h the+ &o"t !$e!+ '' not hae the#aa#t+ to #o&rehen'.

Irref)ta(!+, the rote#ton" %en to &nor" h"tor#a!!+ hae #o&e fro&"o#et+ an' the "+"te&" t ha" )t nto !a#e to rote#t the&. oweer, theA'a& 5a!"h A#t re&oe" the"e rote#ton". Th" A#t "ho)!' (e wrtten toref!e#t the h"tor#a! ew" of rote#tn% an' reha(!tatn% &nor" n"tea'of )n"hn% the& a" a')!t" for "e)a! #r&e", e"e#a!!+ when ther #r&e"

are not a" threatenn% a" tho"e #o&&tte' (+ a')!t" an' )en!e" are not a"!$e!+ to re#'ate. The entre )ro"e of the A'a& 5a!"h A#t " to rote#tthe )(!#, ()t there are few )(!# "afet+ rea"on" for &o"n% re%"tratonan' notf#aton re?)re&ent" on tho"e who o"e a &n&a! r"$ to the#o&&)nt+. In"tea' of reha(!tatn% a )en!e who " )n!$e!+ tore#'ate, th" A#t #a!!" for "tate" to )n"h the& thro)%h re%"tr+re?)re&ent" for at !ea"t ffteen +ear". Th" hn'er" the )en!e" a(!t+ to&oe on wth h" !fe an' (e#o&e an a#te, #ontr()tn% &e&(er of"o#et+. The re%"tr+ "+"te& %e" a fa!"e "en"e of "e#)rt+ a" the+ are nota'e?)ate 'e#ton" of the &&nent 'an%er #o&&)nte" fa#e when &o"t"e offen'er" are )nre%"tere', a#?)antan#e", or fa&!+ &e&(er" of the

22: . Id. #taton o&tte'B.229 . Id. at 1 ?)otn% Tro . D)!!e", 36 U.. :6, 100*01 19:BB.230 . The A'a& 5a!"h Ch!' 7rote#ton an' afet+ A#t of 2006, 7)(. 8. No. 109*24:,

120 tat. :;.231 . QIMRING, sup"a note 33, at 39*49.



YOUNG MACRO 3/6/2014 3/6/2014

200:H C)ILDREN &E OFFENDER& 22;#t&. Therefore n#!)'n% #h!'ren n re%"tr+ !"t" h)rt" the"e #h!'ren&ore than t rote#t" the )(!#.

Cait%in 9oun/ <=<

232 Man+ than$" to tho"e n'')a!" who a"""te' n the e'tn% of th" art#!e. A!"o, a

"e#a! than$" to E)ta E(era for her #onta%o)" e#te&ent a(o)t the !aw an' to a&e" C.

Ma#Rae, r. for the n"raton that &a'e th" art#!e o""(!e. 8a"t!+, I wo)!' !$e to than$

&+ fa&!+ for ther ")ort thro)%ho)t !aw "#hoo!.

children sex offenders: how the adam walsh child protection and safety act hurts the same children...

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