Case Document Entered on FLSD Docket Page of Respondents Exhibit A Case No 08-80736-CIV-MARRA/JOHNSON Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume The questions we address are lim8 ited to issu es of statutory obligation under the CVRA We express no opinion as to whether any of th rights identified in U.S.C a should be provided prior to the f9 iling of a co6 mplaint o6 af4 ter the d6 s5 m9 issal of4 charges as a atter of good practice Departm8 ntal policy or pursuant to the provisions of other victim9 related statutes such as section of the Victim8 Right and Restitu5 tion Act of U.S.C I The CVRA defines a 223crim8 victim8 in relevant part as person directly and proxim8 tely harm8 ed as a result of the comm8 issi on of a Federal offense or an offense in the District of Colum8 bia U.S.C The Act states that crim8 victim8 so defined have the f4 o1 llowin6 g1 rights5 The righ6 to be reaso6 n1 ably pro6 ected from8 the accused The righ6 to reasonab6 accu6 rate and tim8 ely notice of any public cou6 proceed6 ing or any paro6 le proceed6 in6 involving the crim9 or of any release or escap6 of the accu6 sed The right not to be excluded from any such public court proceed6 ing unless th6 court afte9 receiving clear and convin6 cing evidence determ8 ines that testim8 ony by the victim would be m8 terially altered if the victim heard other testimony at that proceed6 ing The righ6 to be reaso6 n1 ably heard at any public proceed6 in6 in the district court involving releas plea sentencing or any parole proceed6 ing Natio-4 al Secu-4 rity Div-4 i1 sio-4 n2 Wh-4 ite Pap-4 e6 Th-5 Vesting f1 Rig-5 t1 Un-5 the Crime Victims Righ-5 ts Act S7 ept Mem9 ran-5 d1 m9 Jo-5 hn-5 Bies e5 pu-5 ty ssistan-5 tto r5 ey Gene8 ral4 Of5 fi4 ce o4 L7 e2 gal4 C4 o4 u4 sel4 f5 om13 R4 onal4 d4 A5 Ci-6 m9 in-5 e5 pu-5 ty ssistan-5 tto-5 rn-5 ey e5 Tax i6 isio-5 n1 Sep-5 m9 nd-5 um9 Jo-5 t6 an Ced-5 rb-5 au-5 m9 Actin-4 Assistan-4 Attorn-4 ey Gen-4 ral Office f2 Leg-4 C7 un-4 se l9 f4 om12 Christopher4 H4 Sc7 hr oe6 der Assistant Attorney Gen-5 e5 ral Office of Leg-5 Po-5 licy Sep-5 il John-5 Bies pu-5 ty Assistan-4 Attorn-4 ey Ge7 neral,5 O4 ffice of5 Legal4 o5 un5 sel4 f5 om13 R4 a2 fael4 Al4 be8 rt4 M4 a8 da8 Ge8 neral4 u5 sel4 Of5 fi4 ce of Just4 i4 ce P7 o5 ra8 s1 Sept4 a1 il for J6 hn Bies De7 puty9 Assistan t7 Attorn-4 ey Gen-4 eral Office of Leg-4 a6 Co-4 un-4 sel r2 om10 St Clair-4 Th-4 eo-4 dor-4 ssistan-5 e5 e5 Cou-5 n1 sel Fed-5 B6 au of-4 Inv-5 stig-5 ation ep-5 PM M7 m9 ndu-5 m9 Jo-5 hn Bies De7 puty Assistant Attorney Ge7 ne7 ra Of-4 ice Legal Co-5 un-5 sel r2 nd-5 Go-5 gg-5 in-5 Ch-5 ief Coun-5 sel r2 ug Enforcem11 ent Adm11 i2 nistration Oct l1 Jo-5 hn-5 Bies e5 t1 y7 ssi stant Attorney Ge6 neral Office of Legal4 C4 o4 u4 sel4 fr5 om13 Au4 drey4 J7 A5 n4 ders7 o4 As7 soci4 at4 Ge8 ner5 a8 l4 C4 u4 sel4 O5 ffi10 ce o4 Le8 gal4 C4 o4 uns7 el4 Depa8 rt4 m7 e2 nt4 o4 Ho-4 lan-4 Secu-4 rity Sep-4 PM il fo-4 Jo-4 hn Bies Depu-4 ty Assistan-4 Atto-4 rn-4 ey Gen-4 e5 ral Office of5 Legal4 o5 un5 sel4 f5 om13 C4 ri4 s8 t4 op5 her5 B4 St4 e8 n5 e2 De8 put4 y5 C4 e2 C4 o5 u5 sel4 O5 p5 e2 rat4 i4 ons8 I5 t4 e2 r5 al4 R4 e2 ve8 n5 S7 e2 rvi4 ce Depa8 rt4 e2 nt4 of t4 Trea8 su4 ry4 S1 ept4 AM4 W5 e2 ap4 preci4 at4 t4 h4 t4 o4 r5 ou4 g4 hnes7 s7 an4 t4 h4 o4 g4 t4 f5 ul10 ness of5 t4 ese subm13 i4 ssi4 ons T7 i4 s1 rand4 um13 add4 esse8 o4 l4 y4 t4 V5 R4 It doe8 no4 t4 add4 ess7 t4 a8 ppl4 i4 cat4 i4 o4 of ot10 her5 st4 at4 ut4 es r2 ov-5 id-5 ing for rig-5 t1 serv-5 ices or restitu-5 tio-5 fo-5 crim10 i1 cti-5 in-5 clu-5 ing wh-5 en-5 su-5 ch ther statu-5 tes app-5 ly r2 wh-5 m9 ig-5 qual4 i4 y4 as7 a c2 t4 unde8 t4 h4 em13 Li4 ke8 wi4 se we were8 n4 t4 as7 ked4 a8 d4 i4 t4 i4 m7 at4 no4 vi4 e8 on4 t4 que8 st4 i4 n4 o4 w5 at constitutes the 223direct a6 proxim11 t2 harm11 necessa6 ry to qualify as a c1 ri8 me victim11 under the C8 RA for a give7 f1 nse as oppo-5 sed-5 to th-5 qu-5 estio-5 f1 wh-5 en-5 su-5 ch i6 ts m9 st r1 ov-5 id-5 ed-5 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of The reasonable right to conf er with the attorney for the Governm8 nt-7 in the case The r4 gh6 to f4 u1 ll and tim9 ely re stitution as provided by law The righ5 to pro5 ceedings free from unreasonable delay The r4 gh6 to be trea5 te5 with fairness and with respect for the victim8 2s dignity and privacy U.S.C a The CVRA repealed and replaced section of the Crim8 Control Act of Pub No Stat codified at U.S.C which appeared in a po5 rtion of that s5 t3 atute know-1 n5 as the Victim8 Rights and Restitu5 tion Act of 223VRRA and which originally provided crim)8 victim9 with a very sim9 ilar list of rights Other sections of the VRRA re-6 m8 in in force Having identified these rights the Act provides several ave nues for their protection by the courts by Executive Branch officers and finally by providing standing to victim8 them8 selves First the Act stat es that any court proceedi ng involving an offense against a crim9 victim9 the court s5 h1 all en6 sure that the crim9 victim8 is afforded these rights U.S.C Second the Act provides that fficers and employees of the Departm8 nt of Justice and other departm8 nts and agencies of the United States engaged in the detection investigation or prosecution of cr im9 shall ake their best efforts to6 see that crim9 victim9 are notified of and accord5 ed the right describ6 in subsection a id and it requires 223the prosecutor to 223advise th crim9 victim9 that the crim9 vi ctim8 can seek the adv6 i3 ce of an atto6 rney with respec5 to the r4 i ghts described in subsection a id Third the Act authorizes crim8 victim8 or their lawful repr es5 entatives as well as 223the attorney for th5 Governm8 nt-7 id to assert CVRA rights by tion the district court in which a defendant is being prosecuted for the crim8 or if no prosecution is underway in the district court T6 VRRA had read as follows Rig-4 t1 f3 Crime Victi-5 A crim10 i1 cti-5 as th-4 fo-4 llowing righ-4 ts Th-5 righ-5 t7 treated with-5 fairn-5 ss and with resp-5 ect for th-5 i1 ctim10 2s i1 ity and privacy T7 ri4 g4 t4 t4 o4 be reas7 ona8 bl4 pr5 ot4 ect4 ed fr5 om7 t4 acc8 use8 of5 fen4 er5 T5 right to be notifie of court proceedi9 ngs7 Th-5 righ-5 to presen-5 at all u1 lic co4 urt4 pr5 ocee8 di4 n4 rel4 a2 t4 e2 t4 of5 fe8 nse unl4 ess7 t4 c8 o5 ur5 t4 det4 e2 rm13 i4 es t4 h5 at4 t4 e2 st4 im13 ony5 b5 y5 t4 cri4 vi4 ct4 im13 woul4 d5 be materially affe6 cted if t8 victim heard ot4 her5 e2 st4 im13 ony5 at4 t4 i4 a2 l4 Th-5 righ-5 to con-5 er with th-5 atto-5 rn-5 ey for th-5 Gov-5 rn-5 men-5 t1 in-5 t7 case Th-4 righ-4 to restitu-4 tio-4 Th-5 righ-5 to in-5 fo-5 rm9 atio-5 ab-5 ou-5 th-5 conv-5 i6 tio-5 sen-5 ten-5 cin-5 g1 im9 iso-5 m9 en-5 and release of t8 offende7 U5 S.C4 b5 T8 ri4 g5 t4 pr5 ovi10 ded5 i4 n5 t4 VR4 R4 a8 p5 pl4 i4 e2 t4 o5 any11 vi10 ct4 im13 of cri4 defi10 ned5 i4 section of that Act as6 pers6 on that has6 suffe7 red di8 rect physical em11 otional or pec-4 uniary harm11 as a result of the commission of a crim11 U.S.C e2 i4 n4 cl4 udi4 n4 a8 cri4 m7 u4 nde8 fede8 ral10 st4 at4 or i4 al10 l4 a2 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC GS0 gs TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume in the d6 stric5 in which th6 crim9 occurred Id The Act di rects the district court take up and decide such a m8 otion forthwith Id The Act provides for expedited m8 nda-6 mus review by the court of app3 eals of any decision denying relief id and it perm8 its the Governm9 ent-6 but not the crim9 victim9 to assert as error on appeal any deni al of a crime victim8 2s right id The Act prov ides that a crim9 victim9 m9 a seek to reopen a plea or a sentence in lim9 ited circu6 m9 stances See id Finall the Act provides that 223nothing in this chapter shal be construed to authorize a cause of action for da-6 m8 ges id and directs that nothing in this chap ter shall be construed to im8 pair the prosecutorial discretion of th Attorney General or any officer under his direction Id In addition to providing m8 eans for judicial enf4 o1 rc5 em9 ent of4 the rights it gu6 a5 ante5 es the Act dire5 cts the Attorney General to p1 rom9 u1 lgat regulations to enfor ce th6 righ6 ts of crim9 victim8 and to ensure compliance by responsible officials with th obligations described in law respec5 ting c5 im9 victim9 Id These regulatio ns 223shall designate an adm8 nistrative authority within the Departm8 nt of Justic5 to re5 ceive and in6 vestig6 ate co6 mplaints relating to the provision or violation of the rights of a crim9 victim9 id A 223require a course of training for employees and offices of the Departm8 nt of Justice that fail to com8 ply with provisions of Federal law pertaini ng to the treatm9 ent of crim9 victim9 id 223contain disciplinary sanctions including suspension or term8 in ation from m8 ployment for em8 ployees of the Departm8 nt of Just-7 ice who will fully or wantonly fail to com8 ply with provisions of4 Federal la5 pertain6 ng6 to the trea5 tm9 ent of4 crim9 victim9 id and 223provide that the Atto6 rney Genera5 or th designee of the Attorney General shall be the fi nal arbiter of the com9 p1 laint and tha5 there sha5 ll be5 no judic5 al review of the final decision of the Attorney General by a5 com9 p1 lainant id Pursuant to th Act 2s dir4 ectiv6 the A8 ttorn6 ey General has prom8 ulgated regulations estab6 lish6 ng procedur4 es f4 o1 crim9 victim9 to f4 ile com9 p1 laints regarding the provision of CVRA rights or other obligations rega rding crim9 victim9 provided by law and to have such com8 plaints adjudicated See C.F.R II While a number of provisions in th6 CVRA indicate tha5 the5 rights it gu6 a5 ante5 es do n6 o1 apply until after the initiation of crim8 inal proceed ings a few provision5 could be read to suggest that a5 le5 ast som9 of4 the rights are to be provided before any char ges are filed In our view the bette5 re5 adin6 of4 the Act 227consider ing its text structure purpose and legislative history that the rights provided by the CVRA are-6 guaranteed only from9 the tim9 crim9 inal proceedings are initiated through a complaint inform8 ation or indictm8 nt See e.g United Sav Ass 2n of Tex Timbers of Inwood Forest Assocs Ltd U.S 223stat utory construction is a holistic endeavor To begin with there are a num9 b1 er of text ual indications that Congress was focused on providing crim8 victim8 n1 opportun ity to participate in pending crim8 inal proceed6 ings these includ6 the use of the term9 ffense in the definition of9 223crim8 victim8 and the use of a num9 b1 er of term9 he accu6 se 223court pro6 eedings,6 and the case the characterizations of several of the rights in secti on a The nature of the CVRA rights considered as a whole also reflects a param ount focus on ensuring that crim8 victim8 have standing and6 an opportun6 ity to b6 heard in pend6 in6 crim9 inal p6 oceed6 ings involving co6 nduct that harm8 ed them This focus is em8 bodied in the enforcem8 ent mechanism8 provided in the Act which direct courts to ensure that crim8 victim8 are afforded their CVRA rights to pa5 rticipa5 in pending crim8 inal proceedings and empower crim8 vic tim8 o1 file m8 o1 tions to enforce these righ6 ts Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of directly in s5 u1 ch proceed6 ings withou6 intervening or becom8 ng a party Th6 judicial en6 forceability of CVRA rights by victim8 the-6 m8 selves distinguishes those rights in the main from8 the rights protected in other victims righ ts statutes and counsels a construction of the Act that clearly def4 nes the a4 v1 ailab6 lity o6 f4 the rights The CV RA 2s legis5 a5 tive history lik6 e5 w3 ise ref4 ec5 ts5 the im8 portance to Congress of ensuring that crim8 vi ctim8 be heard in the judicial process and that they have standing to protect their interest in such proceedings By contrast there is no indication in the Act or its legi slative history that Congress in tended to em9 power crim9 victim9 to initiate in6 dependent court pr oceed5 ings outs5 de the context of a pending crim9 inal proceeding to enforce their rights und5 er the Act and5 thereby co5 mp el federal courts to ad judica5 te th6 existence of a Federal offense absent any form8 chargi ng decision by the Governm8 nt a prospect that would be in considerable tension with the Act 2s express disavowal of any intent to 223impair prosecutorial discretion U.S.C A An analysis of the rights provided by the CVRA ogically begins with its definition of 223crime victim Only 223crime vic tims are entitle to the rights articulated in U.S.C a the opening clause of which states that crim8 victim8 has the following rights For the purp6 o1 ses of the CVRA a 223crim9 victim9 is defined as person directly and proxim8 tely harm8 ed as a result of the comm8 ission of a Federal offense or an offense in the District of Colum9 b1 ia Id em8 phasis added The CVRA 2s definition of 223crim8 victim8 however does not conclusively resolve the questi on of when the rights afforded in section a becom)8 availab6 Neverth6 less the de finition6 requirem9 ent th6 at a crim9 victim9 be harm8 ed as a result of the comm8 ission of a Fede ral f4 ense natura5 lly uggests that a person 2s status as a 223crim9 victim9 can only be determ9 in4 ed after there has been a f9 o1 rm9 al decision to charge a defendant with a partic ular Federal offense Under th is reading the earliest that a 223crim8 victim8 under the Act could be identifi ed6 would be upon the filin6 of a crim8 inal com9 p1 laint 227that is at the5 earlies5 point at whic there is a sworn writte statem8 ent of probable cause to believe that a particular defendant committed an iden6 tif4 ied Fede4 ra4 of4 f4 ense see Fed Cri-7 m8 and hence the first point at which it is possible with any ce5 r4 ain6 to id6 e5 n1 tif4 a 223crim9 victim9 directly and proxim9 ately harm9 ed by the comm8 ission of that offense As our informal advice observed before the filing of a crim9 inal com9 p1 la int it is not clear how one ascertain6 whether a particular harm is the result o6 f4 a 223Federal offense or som8 other sort of conduct th6 at does not co6 nstitu6 te a Federal offens5 Consistent with this reading m8 ost courts to He7 reafte7 t9 is randum12 will use eral offe7 ns to re8 fer5 to of5 fe8 nses eithe8 u4 d4 e2 fe8 de8 ral law or th-4 laws of th-4 District of Co-4 l7 ia Th-4 is read-4 ing f3 th-4 efi7 ition f3 i1 cti-5 also-4 find-4 so-4 su-4 pp-4 ort i7 th-4 i1 st7 f3 th-4 C7 RA 2s enactm12 e1 nt As6 noted the C9 V4 RA re7 peal ed a7 re7 placed se7 ction of the RRA c6 odified at U.S.C8 ich or-5 ig-6 in-6 ally prov-6 id-6 ed icti-6 m9 crim11 with-4 a e6 ry similar li-4 st f3 ri8 t2 see8 supr7 a T8 h5 VR4 R4 A defi10 ned4 c2 t4 i4 m7 br5 oadl4 y4 as pe8 rso4 at has s7 f5 e8 ed4 di10 rect4 p4 y4 s1 i4 cal4 e8 oti4 onal4 or5 pe8 cuni4 a8 y4 ha8 rm13 as a re8 sul4 of th-4 co-4 mm10 issio-4 f2 a cr-4 im10 U.S.C cl7 i7 g2 the co-4 mmissio-4 f2 a cr-4 im10 nder-4 e5 e5 state r2 trib-5 al l7 Rath-5 er th-5 an-5 ad-5 op-5 th-5 is e5 fin-5 itio-5 of 223crime i1 cti-5 in-5 th-5 C7 RA Cong-5 ress relied on a e5 fin-5 itio-5 th-4 at app-4 ears to tak-4 e6 early e6 rb-4 atim10 fro-4 two prior fed-4 e6 ral i1 ctim10 rien-4 ted statu-4 t1 es that li-5 rig-4 t1 t7 restitu-4 tio-4 to-4 ind-4 i1 i1 du-4 als irectly and prox-4 im ate-6 l2 harmed by a6 ffense6 See S.C a Sup-5 p1 II-4 I ef-5 i6 ing-5 icti-6 m9 u1 rp-5 es of-5 t6 icti-6 m9 an-5 itn-5 ess Pr-5 tection of PA-5 as e4 on i1 rectly and r2 i1 tely rmed-4 as a resu-4 lt of th-4 co-4 mm10 is-8 si of an-5 f2 fen-5 for wh-5 ich-5 restitu-5 tio-5 r2 red-5 U.S.C 3A a same fo-4 pur po-5 ses of th-5 Mand-5 ato-5 Victi-5 stitu-5 tio-5 Act Cong)-5 ress 2s app-5 ren-5 ecision-4 to adop-4 th-4 VWPA 2s e5 fin-4 itio-4 of icti-5 is t7 en-4 tially sig-4 i1 fi7 can-4 in-4 so-4 far as it allo-4 ws to lo-4 ok fo-4 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume consider wh6 qualifies as a 223crim9 victim9 under the Act have declin6 ed to extend enforceable rights under the CVRA alleged victim8 of conduct that did not lead to crim8 inal proceedings Standing alone the CVRA 2s definition of 223crim9 victim9 is not dispositive of the questions you have posed But when we consider other aspects of the Act including the nature of the rights conferred the enfo rcem9 n1 m9 echanism9 adopted the general structure and purposes of the Act and the Act 2s legislative history they only strengthen the conclusion that the Act is best understood to confer the rights in sec tion a only when a direct and proximate relationship can be draw8 betw een the victim8 and an underlyi ng Federal offense with which a defendant has been charged in a fed6 eral crim9 inal proceed6 ing To begin with the rights conferred in U.S.C a taken together appear to contem8 plate the existence of an ongoing crim8 inal proceed5 ing initiated by the Government Five of the eight rights articu6 l4 ated th ere expressly refer to or necess arily presup6 pose the ex6 istence of a crim9 inal proceeding Se-6 id a Three of th6 ese reflect th6 victim9 2s right to notification of access to and5 opportunity5 to be hear in public co5 urt proceedings involving release plea sentencing or parole See id a 223The right to reasonable accurate an6 tim9 ely notice of any public cou6 p6 r4 oceeding o6 r4 any parole proceed6 ing involving the crim8 or of any releas5 or escape of the accus5 id a 223The right not to be excluded fro6 m4 any such public cou6 proceed6 i ng unless th6 court af ter receiving clear and convincing evidence determ8 ines that testim8 ony by the victim would be m8 terially altered if the gui10 dance8 t4 de8 ci4 si4 ons t4 e2 r5 re8 t4 i4 ng t4 at st4 at4 ut4 See Hughey United St8 at8 es U.S8 hol11 di5 n6 th-4 at VWPA auth-4 orized restitutio-4 l1 for losses cau-4 ed th-5 offen-5 of co-5 nv-5 ictio-5 Ind-5 eed so-5 m9 co-5 ts a5 in-5 terpreted th-5 CVRA sed on-5 th-5 assu-5 ti-5 n1 th-5 at C6 ng re7 ss was6 awa7 t9 at courts ha i6 terp-5 reted th-5 VWPA no-5 to-6 app-6 ly to un-6 ch-6 arg-6 e4 co-6 ndu-6 ct See U5 i4 t4 e2 St10 at4 es T7 u4 rner Sup-5 p1 d1 e8 f5 l4 l4 C4 o5 ng5 ress pass7 ed5 t4 C4 VR4 A k5 n5 wi10 ng5 t4 at4 si4 m7 i4 l4 a2 l4 a2 ng5 ua8 ge a8 ea8 rl4 i4 e2 vi4 ct4 im13 ri4 ght4 bi4 l4 had5 bee8 in-4 terpreted no-6 to-4 refer to un-4 charg-4 e5 con-4 d2 Si7 ce th-4 VWPA and-4 the CVRA s5 si7 milar fin-4 ition-4 221victim11 it appears that t8 sa6 me reas o5 i4 n5 wo5 ul4 d5 excl10 ude vi4 ct4 im13 of un5 c8 ar5 ge8 c8 n5 d5 ct4 fr5 om13 t4 cl4 ass of5 t4 h5 ose en-5 titled-5 to rti7 ip-5 ato-5 righ-5 ts n1 e5 th-5 C7 VRA foo-5 tnote tted-5 Th-5 is co-5 ts with-5 ho-5 courts in-5 terpreted th-5 CVRA i7 th-5 co-5 t1 ex-5 of restitu-5 tio-5 claim10 th-5 at con-5 t1 ex-5 t7 ey a5 em10 h1 asized-5 th-5 statuto-5 req5 i4 em13 ent4 of5 ect4 an5 p5 r5 oxi4 a2 t4 e2 harm13 cause8 by5 t4 of5 fen5 s2 of c8 o5 n5 i4 c2 t4 i4 on l4 i4 it t4 st4 a8 ndi10 ng5 o5 al4 l4 e2 ge8 crim10 i1 cti-5 m4 assert restitu-4 tio-4 claim10 nder th-4 CVR7 See n1 re Rendo-5 Ga-5 lvis 2d Cir-4 In4 re St10 ew4 art F.3d t6 Cir-5 In5 re A8 t4 r8 o5 bus d1 th Cir-4 U5 i4 t4 e3 St4 at4 es v9 At4 l4 a5 nt10 i4 c3 St4 at4 es st4 I6 r2 on5 Pi4 pe9 C4 o5 Su-5 pp-5 2d D1 Uni5 t5 e9 St5 at5 es v9 Sh6 ar9 Sup-4 p2 E.D.Va Howev-4 in-4 sofar as restitu-4 tio-4 un-4 lik-4 y2 t7 h2 t1 e5 righ-4 ts pr5 o5 i4 e8 i4 n5 sec8 t4 i4 on a8 n5 ecessari4 l4 y5 de8 pe8 nds8 o5 e8 is5 tence of a6 pre6 d2 icate convictio t9 ese c7 o4 nsiderations6 are onl4 y4 s7 u4 ggest4 i4 v4 See8 Tu-7 rn-7 er F7 S7 u5 pp5 at4 excl10 udi10 ng5 vi10 ct4 im13 of u5 c8 a8 ge8 c8 o5 nd5 uct4 f5 r5 t4 cl4 ass o5 those6 entitled t8 participatory rights und er the Act because 223the offe7 nse7 charge a7 ainst a7 de7 fenda7 can serve7 as a basis fo4 ide7 tify4 i3 ng4 a rim12 victim12 as de7 fined4 in t9 C9 V4 RA arcy Pa-5 letz No-6 RA-W-6 MC at S.C Ju-5 e4 in-5 m9 te not lif-5 as a im9 icti-6 m3 n1 e4 th-5 CV-5 R6 A er-5 there has bee7 a prosec7 utorial ecision not to cha7 ge7 anothe7 in ate accus5 ed of attacking him11 Searcy8 v8 Ski10 nne8 o1 R6 M1 at S.C Ju-5 w1 e4 o1 rn-5 m9 eclin-5 ed to bri8 a prosec6 ution agai8 nst a6 inm11 ate accu s6 ed of attacking plaintiff he c6 o3 uld no use the CVRA as5 basis to bri8 his w1 action-5 ag-5 ain-5 in-5 m9 te B6 see United States B6 Pr6 ods N8 rt8 A6 Inc No-7 at T8 e3 Feb5 fi10 ndi10 ng5 ce9 rt4 ai4 C4 VR10 A ri4 ght4 s8 t4 a9 p5 pl4 y5 p5 re-c9 ar6 ge b5 t4 c9 onst10 rui10 ng5 t4 em7 na9 rr6 owl4 y5 s8 as no-4 to in-4 terfere with r2 ecu-4 t1 orial i1 screti7 n2 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC GS0 gs TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of victim8 heard other testimony at that p6 oceed6 ing id a 223The right to be reasonably heard at any public proceeding in the district court i nvolving release plea sentencing or any parole p5 oceeding w3 others regarding the right to restitution and the righ6 to p6 oceed6 ings free from9 unreasonab6 d6 elay likewis5 presum9 th exis5 tence of crim9 inal proceed6 ings agains5 a defendant See id a he right to f4 u1 ll and tim9 ely restitu6 ti on as provided in law id a 223The right to proceedi ngs free f8 om8 unreasonable delay Adm9 ittedly the rem9 ainin6 three righ6 ts set ou in sections a and wo)6 uld not necessa6 r6 ily have to be lim8 ited to the period after the initiation of a cr iminal proceeding Nevertheless in our view the CVRA is best read to contem9 plate judicial enforcem9 ent of these rights only once the Governm8 nt has init iated a federal crim8 inal proceeding We turn first to the 223righ5 t3 to be reason5 ably pro5 ected from8 the accused U.S.C a Section a 2s se of the term 223the accu6 sed appears to contem8 plate th6 at th6 Governm8 nt-7 has already initiated crim8 inal proceedi ngs accused5 is a legal term of art that m9 eans a person who has been form9 al-6 ly charg6 ed with a crim9 See Black 2s Law Dictionary 9th ed person who has been arrest ed and brought before a m8 gistrate or who has been form8 ally charged w8 ith a crim8 A person against whom8 legal proceedings have been initiated see also Michigan Jackson U.S 223After a form8 al accusation h5 been m8 de a perso5 who had pr evious5 ly been just a spect h6 as b6 ecom9 an 221accus5 ed within th6 m9 eaning of the Sixth Am9 endm ent The sing)5 le CVRA decision of which we are aware to address th is issue on the m8 rits adopts just su5 ch a reading of 223accused finding the right to reasonable protection afforded in secti on a of the Act to be applicable o6 n1 ly in th6 co6 ntext of an o6 ngoing criminal p6 oceed6 ing See United States Rubin Supp 2d E.D.N.Y 221Accused m8 ust m8 ean accused by crim8 inal com8 p1 laint infor-6 m8 ation or indictm8 nt of conduct vict im8 izing the com8 p1 lainant The right to be 221reason6 ably protected from9 the accu6 sed canno6 have rip5 ned before the earlies5 of one of these happenings The context in which Congress enacted th CVRA provides an additional reason to adopt th6 is u6 nderstand6 in6 of its righ6 to protectio6 from8 the accused Congress enacted section a against the backdrop of a pre-existing requirem8 nt in se ction of the VRRA that during the investigation of a crim8 designated 223responsible officials at any agency 223engaged in the detection investigation or prosecution of crim8 U.S a shall the earliest opportunity af4 te5 the de5 tec5 ion of a crime id 223arrange for a victim)8 to receive reasonable protection from8 a suspected o6 ffender id em8 phasis added This requ6 ire5 m9 ent rem9 ains in f4 o1 rce an6 by its te rm8 can apply before the filing of crim8 inal charges The contrast between VRRA 2s contin uing requirement that the Governm8 nt-7 provide victim8 with reasonable protection from8 a 223suspect ed offender and the CVRA 2s 223right to be reasonab5 p5 otected fro5 m3 the accused U.S.C a strength)6 ns our conclusion th6 at Congress elected in the CVRA to guarantee crime victim8 a judi cially enf9 o1 rceab6 le rig6 h1 to protection o6 n1 ly after a f9 o1 rm9 al accu sation by the Governm8 nt-7 i.e af ter th6 initiation o6 f4 crim9 inal proceed5 ings.5 This is particularly so g5 ven that the right to pro5 t3 ection in the CVRA replaced a sim8 ilar right be reasonably protected from8 the accused offender U.S.C em8 phasis added previously provided in sectio of the VRRA Indeed reading a victim8 2s entitlem8 nt to protection under section and under secti on a as co-term)8 nous would fail to give m8 eaning to Congress 2s delib erate choice to use different words in two Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume provisions of the sam8 statutory schem8 as well as in what w8 re originally two parts of the sam9 enactm9 ent See e.g Bailey United States U.S holding that a legislature is presum8 to have used no superfluous words and construing words 223use and 223carry in the sam9 statu6 ory sch6 em9 as having separate and non-overlapp6 ng m8 anings quoting P6 att Union P6 ac R.R Co U.S Sim8 ilarly the wording of the CVRA 2s 223reasonab le r4 ght to conf4 er with the atto6 rney f4 o1 the Governm8 nt in the case U.S.C a suggests that the right is intended to apply only once th6 Governm9 nt has in6 itiated crim9 inal proceed6 ings.6 The phrase the case im8 plies the pendency of a judicial proceeding See Chavez Mar5 tin6 ez U.S 221crim9 nal case at the very least requires th initiation of legal pro5 ceed5 ings Black 2s Law Dictionary at defining 223case as a il or crim9 inal proceed ing actio6 suit or co6 ntroversy at law or in equity Blyew United States U.S W9 ll 223The words 221case and 221cause are constantly used as synony m8 in statutes and judicial decisions each m9 eaning a proceed6 ing in6 court a su6 it or action cf Phar-Mor Inc C7 oopers Lybrand F.3d 3d Cir a 223case within the m8 eaning of U.S.C commenced by the filing6 of a petition6 under the B8 nkruptcy C8 ode Congress 2s use f4 the definite article in reference to the word 223case also sup6 ports th6 view that case im8 plies a specific adversary pr oceeding rather than an inde finite ongoing investigation Cf Rumsfeld Padilla U.S interpre ting use of the definite article 223the person in a provision regard ing a habeas corpus custodian to sign6 if4 that there is5 usually only one proper custodian and not several different ones In-4 a law rev-4 i1 ew article u2 lish-4 e5 sh-4 ortly after a ssag-6 of-5 t6 C6 RA-5 on-6 of-5 th-6 2s spo-6 s3 or-5 sug-6 st6 ed that the C8 RA 2s ri8 ght to be r4 easonab ly protected from12 the accuse7 i3 ght a pply ithout re7 gard t8 t8 e7 existence of5 l4 e2 gal pr5 ocee8 di4 n4 w5 i4 c2 coul10 be read4 t4 i4 cl10 ude8 be8 f5 r5 e2 a com13 l4 a2 i4 t4 h4 a2 bee8 fi4 l4 e2 Jon4 Ky4 l4 St4 eve8 T7 i4 s1 t4 St4 ephe9 Hi4 g5 O5 t3 h4 Wi3 n4 of3 T6 ei3 A7 n4 gel3 s1 The8 Sc8 ot3 t3 C3 m5 p4 bel3 l3 St3 eph4 a4 i3 e2 R7 oper7 Wen4 dy Prest9 n4 L6 u4 r7 a Gillis an-5 Nila-5 Lynn-5 Cr ime Victims Ri7 t1 Act Lewis Clark Rev-5 th-5 reason-5 tlin-5 ed above we6 think this6 is not what Co ngre7 ss int9 e1 nde7 with res6 ect to t9 C9 V4 RA 2s judicially enforceable7 ri8 ght t8 pr5 ot4 ect4 i4 n4 as op4 p4 se8 per5 a8 pr5 ot4 ect4 i4 vi ces6 that section of th-5 VRRA ob-5 lig-5 ates th-5 Gov-4 e6 rn-4 en-4 t2 to prov-4 id-4 If this righ were read-5 to app-5 l1 befo-5 re th-5 filin of ch-5 arg-5 th-5 CVRA wo-5 l7 er pri10 at4 ci4 t4 i4 zens7 t4 go4 i4 t4 o4 co4 u4 r5 t4 i4 t4 e8 ab4 senc8 o4 a8 y4 pe8 n4 i4 g4 cha8 r5 ges a8 n4 see8 a8 co4 urt or5 der5 f5 r5 p4 r5 ot4 ect4 i4 on w5 i4 c2 wou-5 l1 requ-5 ire a ju-5 i1 cial termin-5 atio-5 wh-5 et7 th-5 requ-5 isite ele-5 ents inc7 l3 uding t9 e7 is6 tence of a7 Fe7 de7 ral offe7 nse are esen-5 with-5 ou-5 reg-5 a5 rd fo-5 an-5 im pact4 on5 G5 ove8 r5 e2 nt4 al res8 u5 ces o5 o5 pen5 i4 n5 a8 n5 pot4 e8 t4 i4 a2 l4 l4 y5 con5 i4 e8 t4 i4 a2 in-4 stig-4 ation-4 s5 As we i1 scu-4 re fu-4 lly belo-4 su-4 ch a read-5 ing wou-5 ld in-5 ten-5 i6 with th-5 long-5 trad-5 itio-5 of ex-4 ecu-4 tive i1 scretio-4 to in-4 itiate crim10 in-4 al eed-4 i1 ng-4 and ith-4 section of Act wh-4 ich i1 rects th-4 at th-4 Act4 n4 t4 t4 o4 con4 s1 t4 ue8 pai4 t4 pr5 os7 ecut4 o4 ri4 al4 di4 scre8 t4 i4 on of5 t4 At4 t4 o4 rney Ge8 neral o4 a8 y4 o4 ffi4 cer5 u4 nde8 hi4 di4 rect4 i4 o5 U.S7 C4 The l4 e8 gi4 sl4 at4 i4 rec8 r5 s7 u4 ggest10 t4 at4 C3 o4 n4 res7 s7 pri10 ci4 pal4 c8 o4 ncer5 bey10 n4 ens7 ri4 n4 p4 ot4 e8 c2 t4 i4 on of5 vi4 ct4 i4 m7 during t9 pendency of crim12 inal cha7 r4 ge w5 a2 p4 ot4 ect4 i4 o4 a8 t4 e2 a c8 o4 nvi4 ct4 i4 o4 t4 o4 en4 su4 re t4 vi4 ct4 im13 coul4 d4 b4 e2 hea8 d4 wi4 t4 respect4 a det10 e2 rm13 i4 at4 i4 on re8 g4 a2 rdi10 g4 pa8 rol4 o4 earl4 rel4 ease of5 a c8 n4 i4 c2 t4 e2 of5 fen4 e8 A5 co4 l4 l4 oquy bet4 e8 e2 n4 t4 i7 in-5 al sp-5 on-5 sors t7 ill reflects th-5 is co-5 c5 ern-5 Ms Feinstei8 One final poi8 nt T6 roughout this act re7 fe7 re7 nce is a1 de to the used Woul9 th-5 Sen-5 tor also-5 ag-5 ree th-5 at it is ou-5 in-5 ten-5 tion to-5 use th-5 is wo-5 rd-5 in th-5 bro-5 a5 e5 st sen-5 to-5 i6 clu-5 e5 bo-5 th t4 hose ch5 ar8 ged5 an5 c9 o5 nvi4 c3 t4 e3 so-5 t7 at th-5 rights we estab-5 lish ap-5 l1 thro-5 ugh-5 ou-5 th-5 crim10 in-5 al u1 stice syste-7 Mr Kyl Yes6 o4 ng4 R4 e2 c8 c2 ol4 l4 q4 of5 Se8 ns Fei4 st4 ei4 n4 a8 d4 Ky4 l4 em13 h4 a2 si4 ad4 ded4 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of That the rig6 h1 to conf4 er is with the atto6 rney for the Govern6 m9 ent in the case reinforces the conclusion that the right to onf4 er4 is tied to th6 exis5 tence of a crim9 inal proceeding in which a Governm8 nt-7 attorney plays a lead role Of ourse attorneys for the Governm8 nt m8 m8 tim8 es play a role during an investiga tion particularly once a m8 tter is being presented to a grand jury but typically m8 ost investigative work is done by fede ral agents If the right to confer were m8 eant to apply during investigations it is not clear why Congress would have lim8 ited the responsibility to conf4 er with a crim9 victim9 to the a5 ttorn6 ey f4 the Government particularly since there m8 be m8 ny open nvestigations where no attorney ha been assigned ongress understood how to assign responsibilities in connect ion with protecting victim8 right to officials involved in the crim8 inal justice process who were not attorneys including responsibil ities that take ef8 fect before the filing of any crim8 inal charge as it did in the VRRA when it specifically required designated 223responsible officials at all ag encies 223engaged in the detection investigation or prosecution of crim8 U.S.C a to provide the specifi ed services including for exam8 ple a duty to ensure th6 at v6 ctim8 receive 223the earliest poss5 ble notice of 227the status of the inves4 tigation of the crim9 Id A By contras5 lim8 iting th resp6 onsibility to confer to a s5 ngle Governm8 nt-7 attorney would m8 ke sense if the right to conf4 er rela5 tes to iss5 u1 es tha5 ar4 is5 in the course of a crim8 inal proceeding su ch as potential re lease the role of the victim8 as a witness in the course of the prosecution potential plea ag reem8 ents sentencing and restitution ef9 forts for which the prosecuting attorney would be the m8 ost natural party to confer with victim8 The CVRA 2s legislative histor further bolsters our conclusion that the r4 g6 h1 to conf4 er arises once a crim8 inal proceeding has been co mm8 enced Fl-7 oor statem8 ents by both origin6 al sponsors of the Act in the Senate em8 phasize that the right to confer rela tes to the conduct of crim9 inal pro6 ceedings after the fili ng of charges Senator Fein6 stei explain5 that 223the victim of crim8 or their counsel should be able to provide any inform8 ation as well as their opinion direc5 tly to th6 court oncerning the release p6 ea or senten6 ci ng of the accused Of course in providing victim8 infor-7 m8 ation or opinion it is important that the victim8 be-6 able to confer with the prosecutor concernin6 g1 a variety o6 f4 m8 tters an6 proceed6 in6 gs This right is in6 ten6 d1 ed to be expansive For exam8 ple the victim8 has the ri ght to confer with the Governm8 nt concerning any critical stage or disposition of the case Cong Re-6 em8 phasis added Sim9 ilarly Senator Kyl s5 ated that t4 his right to confer does not give th crim9 victim9 any right to direct the prosecution Prosecu tors should consider it part of th eir prof9 ession to be available to consult with crim8 victim8 about concerns the vi ctim8 m8 have which are pertinent to the case case pro5 ceedings or dis5 position5 Under th5 is pro5 vision victim8 are able to confer with the Governm8 nt-7 2s attorney about proceedings after charging Id em9 phasis added Som8 have suggested that the right to confer should be understood to apply to plea negotia4 tions5 that take place before the filing of charges See ENRD Me-6 mo at And it is true that a p6 ch6 arge nego6 tia5 ted ple5 a agre5 em9 ent m9 ay reduce a victim9 2s ability to provide in6 put in a m8 eaningful way regarding the m8 a tters addressed in the agreem8 ent Although m8 uch of such pre charge negotiations m8 relate to charging decisions th at we believe are beyond the ambit of the Strictly4 spea7 k4 i3 ng,5 the g4 an4 jury fo4 re7 pers7 o4 n4 an atto-5 rn-5 ey for th-5 Gov-5 rn e1 nt is c7 arge of pr5 ocee8 di4 n5 be8 fo5 re a g5 an5 j4 u5 ry5 F7 e2 d5 R4 i4 c8 F7 r5 t4 herm13 ore s7 c8 h4 p4 ocee8 di4 n4 a6 r3 confi8 ential as a atter of5 l4 a2 Fe8 R4 C4 i4 and4 t4 R4 A5 2s l4 e2 gi4 sl4 at4 i4 hi10 st4 ory4 s7 o4 s7 t4 h4 at4 C4 n4 re8 ss di4 not4 t4 e2 n4 perm13 i4 t4 crim13 icti-6 m9 to-5 atten-5 d1 gr-4 an-5 ju-5 pr-4 ceed-5 ing-5 Se10 Cong-5 R6 ec tatem10 f2 Sen-5 y1 th-5 i7 t1 is l4 m7 i4 t4 e2 t4 pu4 bl10 i4 c2 pr5 ocee8 di4 n4 t4 u4 gra8 d4 j4 u4 r5 y4 pr5 ocee8 di4 n4 are e8 cl4 u4 ed4 f5 r5 t4 ri4 g4 t4 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume right to confer see U.S.C 223Noth ing in this chapter shall be construed to im8 pair the prosecutorial discretion of the Attorney Gene ral or any officer under his direction we recognize that our reading of th CVRA m8 in certain circum8 st ances reduce the impact of a victim8 2s participation in subse quent court proceedings to which the right to confer does apply See e.g Fed Crim8 plea agreem8 ent binding on court Even in u1 ch a case the CVRA would still ensure that the victim8 has an opportunity to be heard by the court and by the Governm8 nt before-6 the court accepts the plea or im9 poses a se nten6 ce as well as a right to seek m8 ndamus and attempt to have the plea set aside And of course our view of what the CVRA requires in no way lim8 its th discretion either of individua prosecutors to confer with victim8 about pre-charge plea negotiations or of the Attorney General to direct that prosecutors do so as a matter of Departm8 ntal policy The question before us though is not whether it would be advisable as a m8 tter of good practi ce or Departm8 ntal policy f9 o1 Government attorneys to confer with vict im8 pre-charge when appropriate but whether Congress created a judicially-en6 f4 orceable rig6 h1 for vi ctims pursuant to6 which they m8 compel prosecuto6 rs to do so Noting in the Act or its legislative histor suggests Congress intended such a result Accordingly we do not believe the CVRA is best read to obligate the G8 overnm8 nt to confer with victim8 during such pre-charge nego tia5 tions with6 a crim9 inal s5 u1 spect The eighth CVRA right is 223the right to be trea5 ted with f4 airn6 ess and with6 respec5 f4 o1 the victim8 2s dignity and privacy U.S.C a Unlike the te rm8 of the other seven CVRA rights the wording of the right to fairne ss and dignity does not its elf4 indic5 ate that the right applies only once crim8 inal ch arges have been filed The con cepts of 223fairness,6 223dignity,6 and 223priv6 cy are certainly im8 plicated directly in judicial p6 r4 oceedings See e.g Nixon Warner Co5 mmc 2ns Inc U.S addressing tension between privacy and common law right of pub lic access to court records Bu issues of fairness privacy and dignity for victim8 can arise during the cour se of a crim8 inal investigation as well See BP T6 Fift8 Circuit 2s decision in In-6 re e3 an F.3d 5th Cir might be rea6 t8 reach a cont10 rary resul4 t4 Det4 e8 rm13 i4 i4 ng t4 si10 gni4 fi4 ca8 nce8 o5 In-6 re Dean n2 th-4 is qu-4 estion-4 ho-4 wev-4 e5 is co-4 licated-4 o2 th-4 y2 t7 un4 us7 ual4 ci4 rc8 um7 st4 ances of5 t4 at part4 i4 c2 ul4 a8 case and by t8 fact that the pa7 rtie di4 d5 n5 t4 c9 ont4 est10 w6 et4 he9 t4 e9 ri10 ght4 co-5 nfer app-5 lied e-ch-5 arg-5 In-5 co-5 nn-5 ection-5 with th-5 und-5 er lying-5 crimin-5 al tt-5 er sho-5 tly e5 fore th-5 in-5 itiatio-5 of cri4 m7 i4 al4 pr5 oce8 e2 di4 n4 a8 ai4 nst a co4 rp4 orat4 de8 f5 e2 nda8 nt4 Go4 ver5 e2 nt4 fi4 rst fi4 l4 e2 a8 ex part8 procee7 ding s6 eeking and t1 ain-5 i7 g1 a cou)-5 r2 e5 restrictin-5 tice t7 i1 cti-5 n1 th-5 C7 RA un-5 til after ch-5 arg-5 an-5 d1 a l1 ea ag-5 ree-7 en-5 a5 been filed and uns6 ealed argui8 ng that th is5 the 223reas5 ona6 b3 leness require6 m5 ents of U.S.C a6 because f2 th-5 actical7 i1 fficu-5 lties any e-ch-5 arg-5 no-5 tice wo-5 l7 a5 en-5 tailed-5 Se8 I5 re De8 an at In ecti7 th-5 is arg-5 en-5 th-5 Fift7 Circuit ru-5 led th-5 at such-5 an ex parte pr5 ocee8 di4 n4 wa8 co4 nt4 ra8 ry4 t4 h4 p4 o4 i4 s1 i4 o4 ns of5 t4 R4 A and unprece7 de7 nted a7 a a1 tte-5 of la7 Id It7 is un-5 clear wh-5 eth-5 t7 co-5 urt 2s sub-5 eq-5 e5 t1 criticis-8 th-5 Go5 ve8 rnm13 e2 nt4 2s fai4 l4 re c8 o5 nfe8 pre8 cha8 ge8 w5 a2 si4 l4 y5 a respo5 se8 t4 un5 usu5 a2 ex parte filin-5 i6 th-5 case or reflected a broader vie6 that the CVR8 A obl4 at4 es t4 e8 G5 o4 ve8 rnm13 e2 nt4 t4 e8 nga8 ge i4 n4 s7 ch4 p4 char5 ge refe8 rral10 s1 re e5 rally Th-5 cou-5 app-5 eared-5 to recog-5 ize th-5 un-5 iqu-5 223postu re of th-5 is case an-5 was carefu-5 no-5 to ecu-5 late on th-5 app-5 licab-5 ility to-5 t7 situ-5 atio-5 Id-7 at In-5 an-5 ev-5 en-5 th-5 qu-5 estion of-5 wh-5 et6 t6 igh-5 to con-5 f1 er un-5 e4 t6 CV-5 RA-5 app-6 lied at all ch-6 arg-6 ppo-6 sed to-6 th-6 qu-6 estion of-5 th-6 eason-6 ab-6 len-6 ss of-5 t6 r1 ed-6 ur-5 ed in-6 th-6 at case was not10 co4 nt4 es7 t4 e2 o4 bri4 e8 fed4 i4 t4 e8 di4 st4 ri4 ct4 c8 u4 or o4 a8 ppe8 al4 T7 t4 e8 ext4 e8 nt4 t4 at4 t4 h4 c8 u4 r5 t4 of5 ap4 peal4 In4 re Dea4 eld-4 t7 at th-4 ri7 t1 t7 co-4 nfer un-4 e6 t7 CVR7 can tri e5 red du-4 ri7 g2 th-4 i7 itial in-4 stig-4 ativ-4 ph-4 ase f2 the case and that CVRA obl8 i2 gates the Governm11 e1 nt as a general a tter to-4 co-4 nfer with crim10 i1 cti-5 m4 i7 pre-ch-4 arg-4 go-4 tiatio-4 s5 wi7 th-4 crim10 in-4 al su-4 sp-4 ects reg-4 a5 rd-4 i7 a po-4 ten-4 tial plea agreem11 ent we res6 ectfully disagree A num11 ber of sub5 s2 eq5 ue8 nt dec8 i4 si4 ons d5 not4 f5 l4 l4 In-6 re e3 on-4 t7 is i7 nt See8 United States6 Merkosky o2 at Oh-6 io-6 Ap-6 vi4 c9 t4 has ri4 g5 t4 un5 de9 t4 e9 C4 VR10 A onl4 once9 p5 r6 osec9 ut4 i4 has be9 gu5 Rubin Supp-5 at icti-5 rig-5 t1 accru-5 e5 upo-5 filin-5 of t7 ind-5 i1 ctmen-5 t1 see als6 In-5 re Acker h5 C4 i4 w5 het4 e9 a vi4 ct4 im7 has8 ri4 g5 t4 pri10 o5 t4 o5 f6 rm13 al4 charges8 bei10 g5 fi4 l4 e9 i4 ertain-4 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of Prods North Am Inc W9 L1 at 223The right to be treated with fairness and with respect for the victim8 2s dignity and privacy m8 apply with great force during an investigation before any charging instru m8 nt has been filed cf VRRA Pub No Stat is the se nse of Congress that the States should m8 ke every effort to adopt the following goals of the Victim8 of Cri-7 Bill of Rights in6 cludin6 g1 that 223victim8 of crim9 should be treated with com9 p1 assion respect and dignity throughout the crim9 inal justice process This right however m8 us-6 be considered in the co6 ntext of4 the other rights guaranteed by the CVRA Under the well-known canon of statutory interpretation noscitur a sociis which m8 eans that 223words and people are known by their com8 panions Gutierrez Ada U.S 223several item)8 in a list sharing an a ttribute counsels in fa vor of interpreting the other item8 as possessing that attribute as well Beecham United States U.S Similarly here the range of application of the first seven m8 ore specific rights should be understood to inform the scope of9 the potentially m9 o1 re general right to fairness dignity and privacy afforded by section a Cf Jarecki G.D Searle Co U.S construing for tax purposes the term8 iscovery in the phrase 223exploration discovery or prospecting to be lim8 ited to the finding of minerals as suggested by its association with exploration and prospecting and therefore inapplicable to inco m9 from9 a patented item Reading the right to be treated with fairne ss and dignity to appl during pending crim8 inal proceed6 ings is consisten6 t4 with the d6 s5 cussion con6 cerning the right in the C8 V3 RA 2s legis5 ative history Every exam8 ple of crim8 victim8 experien cing unfairness indignitie or violations of their priv6 acy6 discussed in6 the leg6 i slative history refers to situati ons occurring after the filing of charges and typically inv6 o1 lved a deprivation of one or m8 ore of the other rights protected by the Act as well For instan6 c5 the f4 oor d6 ebates re flect concern with the fairness and dignity with which crim9 victim9 are treated durin pending crim8 inal prosecutions Se-6 e.g Cong Rec statem8 nt of Sen Fe instein describing several exam8 ples of the failure to notify crim9 victim9 of4 critical hearings in c5 im9 inal cases as well as other instan6 ces where crim8 victim9 wer-6 problem9 atically exclud ed from9 crim9 inal proceedings id at 223This is not the way crim9 inal justice sho6 u1 ld be pra5 cticed in th6 United States of Am9 erica The tim9 has com9 to give victim8 of crim8 the right to participate in the system8 the right to notice of a public hearing the right to be presen6 at that pub6 lic proceed6 ing the right to m8 ke a statem8 ent when ppropriate the right to have restitution if ordered by a judge the right to know whe-6 your assailant or attacker is released from8 prison and the righ to be treated by our prosecutors and by our crim9 inal jus5 t4 ice sys5 em9 with respe5 ct and dignity.6 id at statem8 nt of Sen Kyl-7 223Fair play for crim8 victim8 m8 eaningf ul participa5 tion6 in the ju stice system9 protection against a governm9 ent that would take from9 a im9 victim the dignity of due process 227these are consistent with the m8 ost basic values of due process in our society These statem8 ents and exam8 ples suggest that Congress was concerned with ensu ring fair treatm8 ent for crim8 victim8 n1 the context of pending crim8 inal proceedings rather than creating6 a righ6 that could be ass5 erted In-4 t7 re ex-4 ten-4 i7 leg-4 i1 sl7 ativ-4 i1 story for S.J Res t5 C5 ng-6 th-6 propo-6 sed co-6 nstitu-6 tio-6 nal en-4 en-4 for wh-4 ich-4 t7 C7 V2 RA em10 erg-4 as a statu-4 t1 ory sub-4 titu-4 te nu-4 ro-4 ex-4 amp-4 l1 es alleged affron-4 ts to fai4 ne8 ss di4 g4 i4 t4 y4 an4 pri10 acy4 suf5 ere8 by c8 i4 m7 vi4 ct4 im again uniform11 l2 arise from the conduct of crim11 inal pr5 ocee8 di4 n4 a8 n4 rel4 a2 t4 t4 perc8 ei4 ved fai4 l4 u4 res by co4 u4 t4 t4 all7 a crim10 i1 t1 to-4 rticip-4 ate ean-4 in-4 gfu-4 l1 l7 y2 in-4 tho-4 pr5 ocee8 di4 n4 a8 g4 ai4 nst4 t4 al4 l4 e2 ge8 vi4 ct4 im13 i4 zer S4 ee ge8 ner7 l3 l3 Rep-5 No-5 at Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume independent of any criminal prosecution For th ese reasons we conclude that the right to fairness dignity and privacy in section a of the Act like the other seven rights should be understood as applying on ly after the filing of crim8 inal charges against a defendant In addition to the nature of the rights provided the structur and purpose of the Act as reflected in the m8 echanism8 provided to enforce th righ6 ts an6 the Act 2s le gislative history also support our conclusion that the rights are guaranteed only once the Governm8 nt has initiated crim9 inal pro6 ceedings T7 h1 m9 echanism9 Congress es tab6 lish6 ed6 in the CVRA to ensure that crim9 victim8 are afforded their rights including by providing crim8 victim8 standing to assert the rights directly all relate to pe nding crim8 inal proceedings Three provisions of the Act ensure that crim9 victim9 are provided their rights or ha ve standing to assert them8 First under the heading 223Rights Afforded the CVRA provide expressly that any court proceeding involving an offense against a crim8 victim8 the court shall ensure that the crim8 victim is afforded the rights described in subsection a U.S.C This provision explicitly empowers 227and indeed requires 227the courts to afford the CVRA rights during pending crim8 inal proceedings Second the Act xplicitly provides crime victim9 the right to participate in a pending crim8 inal pro6 ceeding ithout intervening or beco5 m8 ng a party to the litigation by f4 iling a m9 o1 ti on on their own behalf See id providing crim8 victim8 standing to assert their right under the Act by motion Thir the Act provides that crim8 victim8 are entitled to seek relief by writ of m8 nda mus from9 the court of ap peals if the district court den6 es the relief so6 ught by m8 o1 tion in a pend6 ing crim9 inal proceed6 ing See id he district court denies the relie sought,5 the m8 ovant m8 petition5 the court of appeals for a writ of m8 nda-6 m8 By contrast the CV8 RA includes no provision for crim8 victim8 to initiate independen6 t4 judicial p6 o6 ceedings by any m9 echanis m9 whether by private com9 p1 laint or petition or otherwise to enforce th6 ese righ ts Taken together the enforcem8 ent m8 echanism8 provided by the CVRA appear to be designed to ensure that crim victim8 would have legal standing to be heard in the con5 ext of ongoing crim8 inal p5 oceed5 ings against d5 fendants who have been accused by the Governm8 nt-7 of a Federal offense The CVRA 2s legislative histor likewise underscores m8 ore gene rally that protecting the ability of crim8 victim8 participate in pe nding crim9 inal pro6 ceedings was the prim9 ary purpose underlying the Act Much of the impetus for enactm8 nt of the CVRA ar-7 ose after the Tenth Circuit issued a decision in United States McV6 igh the prosecution of Tim8 othy McVeigh the bom9 ber of4 the f4 edera5 build6 ing in6 Oklahom9 a City lim9 itin6 the ability of4 victim9 to enf4 o1 rce in court their rights under the VRRA The district judge ordere the sequestration of crim8 victim9 from the trial in anticip ation of hearing victim8 m8 p1 statem8 ents at sentencing The T6 Act also assigns6 223the prosecut9 t8 h3 responsi8 bility to a7 dvise7 crim victim11 that ey 223can see6 t8 advice of a7 attorney with re sp-4 ect to th-4 eir CVRA righ-4 ts See U.S7 C4 c9 em13 pha9 si4 ad5 de9 See7 C4 n5 R4 ec st4 a2 e2 nt4 of5 Se8 Fei4 st4 ei4 N5 w5 e8 was t4 h5 nee8 fo5 t4 i4 l4 e2 gi4 sl4 at4 i4 on a2 de re cl4 ear t4 h5 an du5 ri4 n5 t4 r5 i4 a2 l4 s2 ove8 t4 e8 O5 l4 a2 h5 a2 C4 i4 ty5 bom13 bi4 ng5 se7 als6 id at state-7 t1 f2 Sen-5 Kyl is leg-5 i1 slatio-5 is mean-5 to-5 en sure that cases li8 ke the Mc6 Ve igh case where vi8 ctim11 of the Ok-4 lah-4 a City-4 bo-4 in-4 were effectively e6 i1 ed-4 t7 righ-4 to attend-5 the tri7 an-5 to-5 avo-5 i1 fed-5 ral ap-5 peals cou-5 ts fro-5 det4 e2 rm13 i4 i4 ng a8 s1 t4 Te8 nt4 h5 C4 i4 r5 c2 ui4 t4 C4 o5 urt of5 A5 ppeal4 s7 di10 at4 vi4 ct4 im13 had5 n5 o5 st4 an5 di4 n5 t4 o5 se8 ek revi4 e8 of h5 ei4 ri4 g5 t4 t4 attend the trial unde7 the7 form11 er vict law that this bill re7 places Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of victim9 and their fam9 ilies sought m9 ndam9 u1 review in the Tenth Circu6 it rely6 ing inte4 alia on the language in section of the VRRA granting them8 a 223rig h6 to b6 presen6 at all pub6 lic court proceedings related to the offense F.3d 10th Cir The Tenth Circuit denied the m9 andam9 u1 petitio6 holding th6 at cr im9 victim9 lacked standing to e5 n1 f4 o1 rce their rights under the VRRA court Id at declaring VRRA enforceable only throug5 the 223best efforts of the Governm8 nt see also Mem8 o1 randum8 for Kathryn Turm8 an Acting Director Office for Victim8 of Crim8 fr om9 William9 Michael Treanor Deput Assistant Attorn6 ey General Office of Legal Counsel Re Effect of U.S.C Section on Proposed Revisions to the Attorney General 2s Guidelines for Victim and Witness Assistance at Jan VRRA 2s 223best efforts4 obligation does not create jud5 cially enforceable righ6 ts h1 legislativ6 reco6 rd is replete with statem8 ents reflecting Co5 ngress 2s part icular concern with ensuring that crim8 victim8 would have standing to part icipate in ongoing crim8 inal pr oceedings CVRA supporters repeatedly expressed concern regarding the failures of the judicial system to accoun6 sufficiently for victim8 interests and em8 phasized the need to give crim8 victim8 the opportunity to participate in such proceedings th rou6 gh judicially6 enforceab6 le rights By contrast the legislative history contains no di scussion of the possibility of cr im9 victim9 bringing independent proceed6 ings to enforce th6 eir rights rather than en forcing them8 in the con6 ext of existin6 pending crim9 inal pro6 ceedings Particularly given the support for our reading in the text of the Act and its legislative history we are not persuaded by two argum8 ents that have been presented in support of the view that the r4 ghts af4 f4 o1 rded in the Act wer4 m9 eant to apply in som8 circum8 stances before the filing of a crim9 inal c5 m9 p1 laint Althou-5 gh-5 t7 Ten-5 t1 Circu-5 it 2s ru-5 lin-5 in Mc7 V6 e1 igh figu-5 res mo-5 st r2 in-5 en-5 tly in-5 th-5 C7 RA 2s leg-5 i1 slativ-5 i1 sto-4 Cong-4 ress was also tro-4 u2 l1 ed e5 e5 rally y2 cou-4 ts y2 in-4 i1 ctim10 t1 an-4 i1 ng with resp-4 ect to restitu-4 t7 i1 ord-4 e5 rs un6 de9 t5 he9 V6 W6 PA See Rep-4 No-4 at tho-4 rare cases wh-4 en icti-5 seek-4 restitu-4 tio-4 t7 ey face a da6 unting array of obsta6 cles includin barriers t9 thei9 e7 en obtaining tanding to be heard t8 rais6 their cl4 aim13 s1 i4 o4 t4 o4 t4 C9 R3 A5 co4 urt4 ge8 neral10 l4 y4 deni4 ed4 vi4 ct4 st4 andi4 ng be hear5 V5 P6 cases7 See e.g ited t6 tes John-5 so-5 C4 i4 cri4 vi4 ct4 im l4 acks st4 an5 di4 n5 un5 de9 V6 WPA t4 ch-4 allen-4 g2 en-4 i7 al f3 restitu-4 tion ord-4 e6 Un-5 ited ta-5 tes Kelley F.2d t1 Ci7 am10 Th-5 ese cases reste6 in part on a se6 ries5 of S7 p4 em13 C4 u4 deci4 si4 on4 deny4 i4 n4 st4 an4 di4 ng4 t4 c8 i4 vi4 ct4 im13 re ge8 n4 e2 ral4 l4 y4 See Leek6 Ti8 mme6 rman U.S because decision to prosec6 ute6 is solely withi8 discretion of pros6 ecut8 pri8 ate citizen has no ju5 di4 ci4 al4 l4 y5 cog5 i4 zabl4 e8 ri10 ght4 c8 al4 l4 e2 n5 g5 e2 h5 w5 p5 r5 osecut10 r5 g5 es a8 b5 out m7 a2 ki4 ng ecision-4 to pr-4 osecu-4 te Li10 nd4 a R.S4 Ri4 ch4 ar7 d4 pr i7 ate citizen lacks a judicially co-4 gn-4 izab-4 le in-4 terest in-4 t7 r2 s4 ecu-4 tio or no-6 r1 ecu-6 tio-6 of an-6 t5 T5 legislative history re6 flec6 ts a clear c6 o2 nce6 with a fail8 ure to provide c6 i8 m5 victim12 with a eaningful ppo-5 rt7 ity to rticip-5 ate in crimin-5 al r2 ceed-5 i1 ng-5 an c6 onsequently the need to create e6 press enforce6 m5 ent m6 echanism12 s1 fo4 the7 rig4 ts Se8 e.g H.R Rep-5 No-5 at rep-6 in-6 ted-6 in 223Victims of crim10 ten o2 no-4 eel their voices a6 heard or that t8 e6 i concerns6 are adequately addresse7 in t4 j4 u5 di4 ci4 al4 pr5 o5 cess T8 i4 s1 e2 gi4 sl4 at4 i4 on a8 d5 dr5 esses t4 ese8 co5 n5 cerns7 by5 c8 o5 di4 f5 y5 i4 ng t4 e8 ri10 ght4 of5 vi4 ct4 i4 and pr5 o5 i4 i4 n5 the eans to e6 force6 those rights6 C8 o3 ng Rec statem11 nt of Sen Fei8 n3 stein case6 after ca6 se we found victim11 and their fa-6 i2 lies were i8 nored cast as5 id-3 a6 treated as non-pa6 rticip ants6 in a6 critical event i8 th-5 eir-4 liv-5 es They e5 e5 in th-5 rk r2 ecu-5 to-5 r2 to busy to-5 car-4 enoug-5 y1 jud-5 e5 fo-5 cused on e5 a5 ri4 g4 t4 s1 a8 d4 by a co4 urt4 sy4 st4 em13 t4 at4 si4 l4 y4 di4 n4 t4 ha8 ve a8 pl4 a8 ce f5 em13 id-5 at tim11 has come to give i1 cti-5 crime th-4 righ-4 to particip-4 ate in-4 the syste-7 id-5 at state-7 t1 Sen-5 Kyl escri7 ing-5 th-5 Act as prov-4 id-4 i7 cri-5 i1 cti-5 m4 ean-4 in-4 gfu-4 a5 rticip-4 atio-4 i7 th-4 ju-4 stice sy8 ste-7 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume Perhaps the most signif4 i4 cant a5 gum9 ent tha5 the rights guaranteed by the C7 V3 RA may apply before the pendency of crim8 inal proceedings com8 from8 the venue provision which provides that the hts describe in subsection a shall be asserted in the district court in which a defendant is being pros e5 c5 u1 ted f4 o1 the crim9 or if no prosecution is underway in the district court in the district in which the crim8 occurred U.S.C em8 phasis added The phrase no prosecution is underway understo od colloquially m8 ght be thought to envisage the possibility that som8 CVRA rights m8 be asserted before the pendency of crim8 inal proceed6 ings agains5 a particu6 ar defen6 d1 ant But rosecution is also a leg6 a term9 of ar-6 used to refer to the levying of form8 al charges and not merely the iss5 uance of a warran5 upon the filing of a com8 plaint and we think the venue provision should be read in light of this understanding particularly when considered in the context of the other aspects of the Act discussed above For instance Rule of the F6 deral Rules of Cri-7 m8 in al Procedure requires that a felony prosecuted by indictm8 nt and therefore any prosecution of a felony m8 st comm8 enc-6 with the return of an indictm8 nt by a grand jury Fed Crim8 a or if the defendant waives his right to indictm8 nt the filing of an inform8 ation by the Governm8 nt id Cf United States Alvarado F.3d 4th Cir stating that for Sixth Am8 endm8 ent purposes t4 he f4 iling of4 a f4 ederal crim9 inal co6 mpla int does not comm8 nce a form8 al prosecution As a result a 223prosecution doe not necessarily commence sim8 ply because crim9 inal proceed6 ings have been initiated by the filing of a com8 p1 laint a lthough an initial appearance m9 u1 st be held 223without un5 necessary delay afte a defendant is arrested on a warrant Fed Crim8 a A providing fo6 initia5 a ppearance of a person arrested pursu an5 to a warrant At such an initial appearance the m8 gist rate judge informs the defendant of his rights affords him8 a reasonable opportunity to consult with counsel a nd m8 kes an initial dete rm8 ination with respect to the defendant 2s continued detention Fed Crim8 Consequently even before a 223prosecution is 223underway im8 portant rights secured by the CVRA m8 be at stake including the right of crim8 victim8 to be heard with re spect to the possible release of the defendant See U.S.C a Accordingly we believe the venue provision 2s reference to the period when a prosecution is not underway is best read as applying to the period of tim8 between the f4 iling of4 a c5 m9 p1 laint an the initiation of for-7 m8 al-7 charges See8 al4 s8 K4 i4 r8 b5 Il4 l4 i4 noi4 U.S7 f6 r6 p5 r6 p5 oses o5 Si5 xt5 Am14 endm8 ent5 ri11 ght5 co-4 un-4 sel al pro-4 ecu-4 ti7 n2 do-4 es no-4 co-4 m4 en-4 ce with filin-5 of co-5 lain-5 an-5 issu-5 an-5 ce f2 arrest warran-5 t1 Uni4 t4 e2 d5 St10 at4 es v8 P8 ce F.2d th-5 Cir filin-5 of co-5 lain-5 an-5 issuan-5 ce f2 arrest warran-5 do5 n5 t4 c8 m7 ence c8 i4 m7 i4 al4 pr5 osec8 ut4 i4 n5 f5 r5 S7 i4 xt4 Am13 endm13 ent4 p5 u5 p5 ses8 bu5 t4 rat4 er5 base8 on5 Fe8 C4 ro-7 cu-7 tio-7 co-7 mme-4 ced when the6 indictment wa6 hande6 down B8 t4 see H5 a4 nra4 h4 n4 U5 i4 t4 e2 St4 at4 e8 F.2d C4 C4 I6 s8 e3 cases t4 fo5 rm13 al4 prosec9 ut4 i4 o5 a3 be9 gi4 wi4 t4 e9 i4 ndi4 ct4 e3 nt4 or f6 rm13 at4 i4 on Bu-5 in th-5 e5 rs th-5 r2 ecu-5 tio-5 may in wit6 th-5 filing a co-5 m9 lain-5 Moreov-4 er wh-4 en a fend-4 ant is arrested t7 sid-4 t7 i1 strict wh-4 ere t7 crim10 ccu-4 rred such in-4 itial pr5 ocee8 di4 n4 m7 a2 y4 not occ8 r5 i4 n4 t4 di4 st4 ri4 ct where the6 crim11 occurred On-4 this read-4 i7 the Act 2s i1 rection th-4 at th-4 victim12 seek rel9 i3 ef t9 district cour in-5 t7 i1 strict in wh-5 ich-5 th-5 crim10 ccu-5 rr-4 ed U.S.C o1 l6 appl4 du4 ri4 n4 s7 ch4 a peri10 od4 an4 wo4 ul4 d4 se8 nsi4 b4 l4 y4 di4 rect4 t4 c7 i8 m5 victim11 to the court wher t8 prosec6 ution st likely wou-4 l1 ltim10 ate-6 l1 ccur i7 con-4 f3 ity with-4 Fed-4 C7 im10 overn-4 en-4 t1 st r3 ecu-4 t1 an offen-4 in-4 a i1 strict wh-5 ere th-5 f2 fense was co-5 mmitted-5 Gi7 th-5 at we read-5 th-5 is prov-5 i7 io-5 as co-5 nsiste nt5 wi5 t5 h5 o5 u5 c9 o5 ncl5 si11 on5 re9 gar6 i5 n5 whe9 V6 R4 A ri11 ght5 becom11 available we do not reach th quest9 i3 on of whet9 her othe7 periods of tim12 such as6 after judgm12 e1 nt has bee7 en-5 ter-4 e5 an-5 a pr-4 ecu-5 tion-5 is no-5 long-5 er und-5 erw-4 also-5 satisf-4 y1 th-5 nu-5 r2 ov-5 isio-5 of th-5 Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC TT0 Tf Tc Tw Tm The Availabil5 ity of Crime Victims Rights Under The Crime Victi-6 Rights Act of Sim8 ilarly in our view sec1 tion of the 227whic requires those involved in the 223detection investigation or pros ecution of crim8 to m8 ke their bes5 e5 f4 f4 o1 rts to see that c5 im9 victim8 are notified of and accord5 ed their CV RA rights 227does not indicate that the CVRA rights apply before the G8 overnm9 ent initiates cr im8 inal p5 oceed5 ings As we noted in ou5 inform9 al advice th6 ese references to detection and investigation tell us about which federal officials have obligations to ensure the protection of victim8 rights not when those rights arise For exam8 ple the role of field agents that is those centrally responsible for the detection and investigation of crim8 does not stop with the filing of crim8 inal charges Rather agents and detectives play an ongoing role throughout th prosecution of a case including continued investigative efforts and interaction5 with vic tim8 and where necessary assisting in p5 r3 oviding protection to victim9 and witnesses In particu6 ar agents often develop a rela tionship of trust with cr4 im9 victim9 during the inve5 stigation that continues as they assist crim8 victim8 in negotia5 ting activ6 cr4 im9 inal proc5 eedi ngs Given this continuing activ role that agents5 typically play during crim8 inal prosecutions we find the fact3 that the C7 V3 RA assigns responsibility to them8 together with the attorney for the Governm8 nt to notify crim9 victim9 of and accord them9 their rights under the CVRA be enti rely consistent with our conclu sion that those rights arise only once the Governm8 nt has initiated crim8 inal proceedings Finally we would note that a co ntrary view would be in som8 tension with the CVRA 2s express d6 savowal of perm8 itting any interferen6 ce with our cou6 n1 try 2s long-s5 anding trad6 ition of governm8 ntal control of8 prosecutions See U.S.C 223Nothing in this chapter shall b6 con6 strued to im9 pair the pros5 ecutor4 al d6 i scretion of the Attorney General or any officer under his d6 rection.6 eading th6 CVRA to m9 po wer private individu5 als to initiate proceedings in court m8 king allegations that a Federal offens occurred prior to th6 filing of any crim8 inal charges by the Government would at a m8 ni-7 m8 cr eate substantial tensi on with this tradition Courts would be required to adjudicate at a pr ivate party 2s instigati on the factual questions necessary to conclude that an asserted CVRA right should be enforced including the existence of a Federal offense Such a court proceeding wh ile the Governm9 ent 2s inv6 estig6 ation of9 the crim9 rem8 ins underway and in the absence of any conc lusion by the Government that federal charges are warranted would place substantial pressure on the Governm8 nt 2s prosecutorial charging decis5 ons an6 m8 even risk in some cir4 um8 stan-1 ces im8 pairing the Governm8 nt 2s ability to build a viable case This risk m8 be particularly a pparent in large-scale cas es where the G8 overnm9 ent often relies in part on the assistance of ooperating defendants and depends upon m8 intaining the secrecy of the ongoing investig ation The legislative history does not suggest that Congress intended such an outcome To the contrary bo th section and the legislative record as a whole suggest that Congr ess did not intend to im8 pinge upon prosecutorial independence T6 princi8 ple that the a7 thori8 t2 to cha7 ge7 cri9 m6 inal offe7 nses is reserv ed-5 to atto-5 rn-5 eys fo-5 t6 Go-5 e5 rn-5 m9 ep-4 roo-4 t1 th-4 at go ack to th-4 foun-4 i7 g2 of u2 Gov-4 e5 rn-4 t1 und-4 er th-4 C7 titu-4 tion-4 Se8 e.g J5 udiciary Act of ch-5 Stat stab-5 lish-5 ing f1 ice of Un ited States District Attorney wi8 th the e7 cl8 usive powe7 t8 pr5 osec8 ut3 del3 i3 q4 e8 t3 s1 f5 o4 r5 cri3 es and of5 f5 e2 nses,6 ogn-5 izab-5 le und-5 er th-5 au-5 tho-5 ity of the Un-5 ited States see als6 Respect Due8 t4 o4 C4 o4 nsul4 Op Att 2y Gen-5 will t7 du-5 ty f2 th-5 i1 strict atto-5 rn-5 ey to redu-5 ce th-5 esen-5 tm10 en-5 in-5 to-5 fo-5 rm10 and-5 the po-5 in-5 in co-5 t1 ro-5 e5 rsy will th-5 us e5 pu-5 in a train-5 fo-5 j4 u5 di4 ci4 al eterm10 in-4 atio-4 Heckler v7 Ch-5 an-5 ey U5 t4 de8 ci4 si4 on of5 a pr5 os8 ecut4 o5 i4 n5 t4 E8 ecut4 i4 e8 B4 a8 c8 not4 i4 n5 di4 ct4 ha8 l4 o5 n5 been re6 garde6 as the s6 ecial province of th-5 Ex-5 ecu-5 tiv-5 Bran-5 ch in-5 asm9 ch as it is th-5 Ex-5 ecu-5 tiv-5 who-5 is ch-5 arg-5 e5 y1 th-5 Co-5 titu-5 tion-5 t7 o1 Care th-5 at th-5 Laws faith-5 fu lly ex-4 ecuted-4 citin-4 U.S Con-4 art II Case Document Entered on FLSD Docket Page of Top BBox Type Pagination BDC GS0 gs TT0 Tf Tc Tw Tm Opinions of t6 Office of Legal Counsel in Volume but rather to6 ensure th6 at once cr im9 inal proc5 eedin6 gs are in6 itiated crim9 victim9 have rights to be heard and treated fairly in the process and standing to enforce those rights For these sam8 reasons we also conclude that rights under the CVRA ce-6 ase to be guaranteed if all charg6 es5 in the case are dism9 isse eithe5 volu6 n1 tar4 ily or on6 the m9 erits o6 n1 ce the dism9 issal becom9 es final and the criminal p6 oceed6 i6 ngs have en6 ded or if th6 Governm8 nt declines to bring form8 al charges after the filing of a co mplaint As we have explained the V2 RA 2s guarantees are prem8 ised on the existence of an accused against whom8 the Governm8 nt-7 has initiated crim8 inal proceedings ith respect to a particular offe nse or offenses Ensuring that victim9 interests are p6 o6 ected durin6 the cour s5 of those pro6 ceedings is the CVRA 2s core purpose In the absen6 ce of a proceed6 ing again6 st a particular a4 ccused th5 at anim8 ates the CVRA 2s guarantees the rights guaranteed by the Act would not apply For these reasons we conclude that rights of crime victim8 unde the Cr4 ime Victim9 Rights Act are not guaranteed until crim8 inal proceed ings are initiated by the filing of a crim8 inal com8 plaint or inform8 ation or by the return of an in6 dictm9 ent and cease to b6 guaran6 eed6 if all charges in th6 case are declined o6 dis5 m9 i ssed either voluntarily or on the m8 rits JOHN BIES Deputy Assistant Attorney General Case Document Entered on FLSD Docket Page of
