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National Conference on Sex Offender Registries U.S. Department of Justice Office of Justice Programs Bureau of Justice Statistics National Conference on Sex Offender Registries Proceedings of a BJS/SEARCH conference Papers presented by Patty Wetterling Ralph C. Thomas Kirk Lonbom Dr. Jan M. Chaiken Elizabeth A. Pearson Mike Welter Marlene Beckman Dena T. Sacco Norm Maleng Lisa Gursky Sorkin Robert R. Belair Rep. Mike Lawlor Donna Feinberg Floyd Epps Sen. Florence Shapiro James C. Swain Kathy J. Canestrini Roxanne Lieb Emmet A. Rathbun Doug Smith Scott A. Cooper Donna M. Uzzell Criminal Justice Information Policy U.S. Department of Justice Office of Justice Programs Bureau of Justice Statistics National Conference on Sex Offender Registries Proceedings of a BJS/SEARCH conference April 1998, NCJ-168965 Papers presented by Patty Wetterling Ralph C. Thomas Kirk Lonbom Dr. Jan M. Chaiken Elizabeth A. Pearson Mike Welter Marlene Beckman Dena T. Sacco Norm Maleng Lisa Gursky Sorkin Robert R. Belair Rep. Mike Lawlor Donna Feinberg Floyd Epps Sen. Florence Shapiro James C. Swain Kathy J. Canestrini Roxanne Lieb Emmet A. Rathbun Doug Smith Scott A. Cooper Donna M. Uzzell U.S. Department of Justice Office of Justice Programs Bureau of Justice Statistics Jan M. Chaiken, Ph.D. Director Acknowledgments This report was prepared by SEARCH, The National Consortium for Justice Information and Statistics, Kenneth E. Bischoff, Chairman, and Gary R. Cooper, Executive Director. The project director was Sheila J. Barton, Deputy Director. Twyla R. Cunningham, Manager, and Eric C. Johnson, Writer/Researcher, Corporate Communications, edited the proceedings. Jane L. Bassett, Publishing Assistant, provided layout and design assistance. The federal project monitor was Carol G. Kaplan, Chief, National Criminal History Improvement Programs, Bureau of Justice Statistics. Report of work performed under BJS Grant No. 96-BJ-CX-K010, awarded to SEARCH Group, Inc., 7311 Greenhaven Drive, Suite 145, Sacramento, California 95831. Contents of this document do not necessarily reflect the views or policies of the Bureau of Justice Statistics or the U.S. Department of Justice. Copyright © SEARCH, The National Consortium for Justice Information and Statistics, 1998. The U.S. Department of Justice authorizes any person to reproduce, publish, translate or otherwise use all or any part of the copyrighted material in this publication with the exception of those items indicating they are copyrighted or printed by any source other than SEARCH, The National Consortium for Justice Information and Statistics. ii Contents Foreword, v Introduction, vii Keynote address Patty Wetterling The Jacob Wetterling story, 3 Nature and management of the problem Dr. Jan M. Chaiken Sex offenders and offending: Learning more from national data collection programs, 8 Federal panel: Wetterling Act/Megan’s Law compliance issues Marlene Beckman Panel introduction, 15 Lisa Gursky Sorkin The trilogy of Federal statutes, 16 Donna Feinberg Justice Department guideline changes and clarifications, 19 James C. Swain Applying for a compliance deadline extension, 22 Federal panel members Panel question-and-answer session, 24 Federal funding support Dr. Jan M. Chaiken Federal funding support for sex offender registries, 31 FBI panel: Interim and permanent solutions Emmet A. Rathbun History and current status of a national sex offender registry, 37 Ralph C. Thomas The impact of the Lychner Act, 40 Overview of current State laws Elizabeth A. Pearson Status and latest developments in sex offender registration and notification laws, 45 Litigation issues Dena T. Sacco Arguments used to challenge notification laws — and the government’s response, 50 Pending legislation Robert R. Belair Status of Federal legislation on sex offenders and changes to current laws, 54 Panel of the States: Systems for the registration of sex offenders Floyd Epps Review of the New York State Sex Offender Registration Act, 59 Kathy J. Canestrini The method of risk assessment used for the New York State Sex Offender Registration Act, 61 Doug Smith California’s history of sex offender registration requirements and response to new Federal mandates, 64 Donna M. Uzzell The Florida sex offender registration and notification system, 68 iii Kirk Lonbom The Illinois registration and notification system for sex offenders, 72 Mike Welter Development of the Illinois sex offender registration and community notification program, 75 The local responsibility Norm Maleng The local responsibility for control and prosecution of sex offenders: Behind Washington State’s history of landmark sex offender laws, 81 Panel of the States: Enacting legislation Rep. Mike Lawlor Creating effective sex offender legislation requires collaboration between lawmakers and justice agencies, 87 Sen. Florence Shapiro The big picture of sex offenders and public policy, 92 Panel of the States: Community notification and verification practices Roxanne Lieb The State of Washington study of the efficacy of notification laws, 101 Scott A. Cooper Community notification and verification practices in three States, 103 Contributors’ biographies, 109 Appendix, 117 iv Foreword Americans have become deadlines risked losing 10 percent National Conference on Sex increasingly angry in recent years of their appropriation from the Offender Registries, held July 16- in response to a series of violent Federal Edward Byrne Memorial 17, 1997, in Bellevue, Washington. and highly publicized sexual State and Local Law Enforcement This publication presents the assaults, primarily against children, Assistance Program, which proceedings of that 2-day committed by individuals with provides funding for State and local conference. extensive prior sexual offense crime eradication efforts. The conference featured histories. This outrage has been Compliance was complicated by presentations by Federal officials intensified by the perception, the fact that both Megan’s Law and who explained the requirements of justified or not, that systems the Lychner Act amended portions the registration and notification traditionally used by justice of the Wetterling Act, creating statutes in detail and who answered agencies to monitor law-breakers confusion as to whether the the questions of State returned to the community do not requirements of one statute representatives. Representatives adequately protect the public from superceded those of another. There from several States presented that unique category of individual were also questions as to whether information on programs that their known as the sex offender. the registration and notification States had implemented in response Seeking to address the public’s programs, once implemented, to the Federal requirements. concern, the U.S. Congress would survive constitutional Elected officials provided a established three statutes that challenges based on claims of legislative perspective to the collectively require States to excessive punishment, invasion of proceedings, and experts updated strengthen the procedures they use privacy and denial of due process. participants on the status of legal to keep track of sex offenders: the Another hurdle was the growing challenges to registration and Jacob Wetterling Crimes Against number of individuals who fell notification programs. Children and Sexually Violent under the statutes’ requirements. Many of the problems and issue Offender Registration Act (enacted According to data compiled by the areas identified in these in 1994), the Federal version of Bureau of Justice Statistics, the proceedings were subsequently “Megan’s Law” (enacted in 1996), number of sex offenders jumped addressed or ameliorated in Federal and the Pam Lychner Sexual 300 percent between 1980 and legislation and regulations. Offender Tracking and 1994. In 1994, there were The issue of sex offending is as Identification Act (also enacted in approximately 234,000 sex sensitive and emotionally charged 1996). offenders under the care, custody or as any faced by society. The In brief, the statutes require control of corrections agencies — federally required programs are States to establish registration 60 percent under conditional relatively new or redesigned programs so local law enforcement supervision in the community — approaches to controlling sex will know the whereabouts of sex on any given day. offenders, and a period of time offenders released into their States experiencing difficulty must elapse before quantitative jurisdictions, and notification meeting the compliance deadlines study can be conducted to ascertain programs so the public can be were given the opportunity to whether they are effective. I hope warned about sex offenders living request 2-year, “good-faith-effort” these proceedings serve during this in the community. (The Lychner extensions. Forty-two of the 56 period as a valuable reference tool Act also requires the creation of a States and territories required to and also as a contribution to the national sex offender registry, and comply with the statutes requested ongoing debate over the methods it requires the FBI to handle deadline extensions. It appeared the used to control sex offenders. registration in States that lack States needed guidance and “minimally sufficient” programs.) clarification to help them comply The States were assigned a with the registration and difficult task. They were given until notification statutes. September 1997 to comply with the To assist the States, the Bureau Wetterling Act and Megan’s Law, of Justice Statistics, along with and until October
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