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SW\  `&Times New RomanS7M(X7&  d dK)1dxd'dxd<:zTop of For7O(X7  ?X%2A`Arial?  SW\  `&Times New RomanS7M(X7K)2dxd0KS.SampleKV<6X9`(Courier NewKSW\  `&Times New RomanS0.Strong 8dl6TypewriterKV<6X9`(Courier NewKSW\  `&Times New RomanS42Variable: 8HTML MarkupB      2 0CommentB  <6X9`(Courier New\  `&Times New Roman%2A`Arial(O$(:2W$ !XXLXXX     $XGXXX  =GXXdd=    10    _bXGXXXGԀBecausetheprecedinganalysisconcludesthattheBOP'snew  policyisbasedonanerroneousinterpretationof3621(b),#XGXXbXG#bXGXXXGwedo  notreachtheissuesofwhetherthedefendants'adoptionofthe \ policycompliedwiththerequirementsoftheAPAandwhether#XGXXbXG#bXGXXXGԀits 2 applicationto_ Goldings_ ԀwouldviolatehisrightsundertheDue X ProcessandExPostFactoClausesoftheUnitedStates . Constitution.#XGXXbXG#\  `&Times New Roman$%&()*+, 35;AGMSY_11.1.1.1.1.1.1.1.($Z_MA<< c(;3$2#  0  .3  0  <6X9`(Courier\  `&Times New Roman  $XGXXX  =GXXdd=    5    _Indismissing_Goldings_'complaint,thedistrictcourtrelied  largelyonthereasoninginJudge_Lasker_'sorderinKennedyv.  _Winn_,Civ.No.0310568MEL(D.Mass.July9,2003)(slipop.), \ whichheldthatahabeascorpuspetitionerwasnotentitledtoa 2 particularreleasedatepriortothelasttenpercentofhisterm, X towhichhehadbeenassignedbeforethe_OLC_ԀMemorandum.However, . asthedistrictcourtexplainedin_Monahan_v._Winn_,276F.Supp.2d   196,211n.11(D.Mass.2003),"[_t]he_ԀKennedyanalysis...    recognizedthatbXGXXXG#XGXXbXG#Ԁ3624(c)didnotrequirethattheBOPdoanything  untilKennedymetthe10percentmarker,andstoppedthere.Left  toconsideriswhethertheBOPwasallowedtomoveKennedyinto \ communityconfinementunderbXGXXXG#XGXXbXG#3621(b)."UnlikeKennedy,_Goldings_ 2 doesnotclaimthatheisentitledtoaparticularreleasedate X pursuanttobXGXXXG#XGXXbXG#3624(c);rather,hearguesthattheBOP'sregular . practiceoftransferringprisonersto_CCCs_Ԁatthesixmonthmarkof   theirsentenceswasaproperexerciseofdiscretionunderbXGXXXG#XGXXbXG#3621(b)   thatwasunlawfullycurtailedbythe_OLC_ԀMemorandumandresultant `  policychange.  e L:\JUDGES\Boudin\TEMPLATE\OPINIONS\ALDRICH.WPT   2 ' Turner0Turner .   3#37=CIQYag1.a.i.(1)(a)(i)1)a)   ii) , $XGXXX  =GXXdd=    9    _bXGXXXGIndeed,#XGXXbXG#bXGXXXGthe_OLC_Ԁitselfpreviouslyrecognizedthatany  correctionalfacility,includingacommunitycorrectionalfacility,  maybeaplaceofimprisonmentpursuanttotheplainmeaningof \ #XGXXbXG#bXGXXXG3621(b): 2 Thereis,moreover,nostatutorybasisinsection X #XGXXbXGm#bXGXXXG3621(b)fordistinguishingbetweenresidentialcommunity . facilitiesandsecurefacilities.Becausetheplain   languageofsection3621(b)allowsBOPtodesignate"any   availablepenalorcorrectionalfacility,"weare `  unwillingtofindalimitationonthatdesignation 6   authoritybasedonlegislativehistory.Moreover,the  \  subsequentdeletionofthedefinitionof"facility"  2  furtherunderminestheargumentthatCongressintendedto   distinguishbetweenresidentialcommunityfacilitiesand   otherkindsoffacilities. d  OfficeoftheLegalCounsel,UnitedStatesDepartmentof :   Justice,#XGXXbXG/#bXGXXXGStatutoryAuthoritytoContractwiththePrivate  SectorforSecure_Facilities_Ԁ(Mar#XGXXbXG#bXGXXXG.25,1992),4n YO  5  availableat  http://www.usdoj.gov/olc/quinlan.15.htm(lastvisitedAug.18, \ 2004).6YO  7 #XGXXbXGr#http://www/usdoj.gov/olc/quinlan.15.htmhttp://www.bop.gov , $XGXXX  =GXXdd=    3    _Wereproducethetextof3621(a)(b)and3624(c)inthe  appendix.  $XGXXX  =GXXdd=    11    _Furtherconfirmingthedifficultyofdeterminingwhetherthe  plainmeaningof"imprisonment"encompassescommunityconfinement,  courtsaddressingthequestion,inotherareasofsentencinglaw, \ haveofferedconflictingviewsonthequestion.SeeIacaboniv. 2 UnitedStates,251F.Supp.2d1015,103035(D.Mass.2003) X (summarizingrelevantcaselaw).  $XGXXX  =GXXdd=    12    _Theimportantchangetoexistinglawmadeby3621(b)is  thatittransferredthecustodyofprisonersfromtheAttorney  GeneraldirectlytoBOP.Under4082,theAttorneyGeneralhad \ custodyoffederalprisonersbutdelegatedthisauthoritytoBOPin 2 thefirstinstance.SeeBardenv.Keohane,921F.2d476,48182 X (3dCir.1990).  $XGXXX  =GXXdd=    7    _ThedefendantssuggestthatareportoftheHouseCommittee  deliberationsthattookplaceduringconsiderationofa1990  amendmentto3624(c)"supportstheconclusionthat"3624(c) \ reflectsastrictlimitationontheBOP'sauthoritytodesignate 2 prisonerstocommunityconfinementcenters."Thereportstated X thatunder3624(c),"theBureaucanonlyplaceaninmateina . CommunityCorrectionCenterforuptosixmonthsorforthelast10   percentofhisorhersentence,whicheverisshorter"andnoted   thatthebillthatwasbeforetheHouseatthattimewouldhave `  eliminatedtheprovision'stimelimitations.136Cong.Rec.27,587 6   88(1990).However,thisreport,compiledbyasessionofCongress  \  subsequenttotheonethatenacted3624(c)in1984,providesno  2  meaningfulinsightintothelegislativeintentofthesection's   originaldrafters.Inanyevent,suchlegislativehistorycarries   littleweightwhere,ashere,adifferentlegislativeintentis d  clearlyexpressedbythestatute'splainlanguage.UnitedStates :  v.CharlesGeorgeTruckingCo.,823F.3d685,68889(1stCir. `  1987). % $XGXXX  =GXXdd=    6    _InProws,acasedecidedundertheoldBOPpolicy,afederal  prisonersoughtaninjunctioncompellinghisplacementinahalfway  houseorCCConthetheorythat3624(c)mandates_nonprison_ \ placementforfederalprisonerspriortotheirrelease.TheTenth 2 Circuitrejectedtheprisoner'sclaim,holdingthat3624(c)does X notconferonprisonersanenforceablerighttoanyparticularform . ofprereleasecustody.    1 $XGXXX  =GXXdd=    13    _Indeed,absentcompellingcircumstances,federalcourts  shouldnotevenreviewaBOPdecisionconcerningaprisoner  placement.18_U.S.C.C.A.N._Ԁat3325(citing_Darsey_v.United \ States,318FSupp.1346(W.D.Mo.1970).yzZ{|E<<C  $XGXXX  =GXXdd=    14    _Thegovernmentcontendsthatonereasonthat3621(b)should  beinterpretedtoprohibitCCCplacementsisthattheSentencing  GuidelinesprohibitcourtsfromgrantingCCCplacementsto \ individualssentencedtotermsofimprisonment.U.S.S.G.5C.1.1. 2 Itis,Iagree,inappropriateforustointerpretthemeaningof X 3621(b)toassurethatitisconsistentwithsubsequentrules . promulgatedbytheSentencingCommission.Anteat23.ButBOPmay   decidethat,asamatterofsoundpolicy,itshouldexerciseits   3621(b)discretioninharmonywiththeGuidelinesandthusprohibit `  inconsistentCCCplacements.  $XGXXX  =GXXdd=    4    _The_OLC_ԀMemorandumtreatedcommunityconfinementcenters,  halfwayhouses,andothercommunityconfinementfacilitiesas  equivalentforpurposesoftheissueinthiscase.Weapplythis \ understandinghereaswell.Level 1Level 2Level 3Level 4Level 5(;3]$ !XXLXXX  ($$   1  '''')!dxdx  $XGXXX  =GXXdd=    2    _TheNationalAssociationofCriminalDefenseLawyers,  CriminalJusticeActBoard,andFamiliesAgainstMandatoryMinimums  Foundationparticipatedinoralargumentasamicionbehalfofthe \ proseplaintiff.Weappreciatetheirassistance. , $XGXXX  =GXXdd=    1    _XGXXXG_Goldings_'complaintallegedthattheBOProutinelyconsidered  "thevastmajority"ofinmatesforplacementin_CCCs_Ԁforperiodsin  excessofthelasttenpercentoftheirsentences.#XGXXXG#ԀIntheir \ memorandumfiledinsupportoftheirmotiontodismiss,the 2 defendantsdisagreedwith_Goldings_'characterizationbut X acknowledgedthatatleastsomeprisonerswereplacedin_CCCs_Ԁfor . periodsinexcessoftenpercentoftheirtermsofimprisonment.   Weaccept_Goldings_'characterizationastrue,aswemustin   reviewingthedismissalofacomplaintpursuanttoRule12(b)(6). `  AlternativeSys.Concepts,Inc.v._Synopsys_,Inc.,374F.3d23,29 6   (1stCir.2004).<4 9Z+.Courier New Regular  $XGXXX  =GXXdd=    8    _The_OLC_ԀMemorandum"_assume[d_]_arguendo_Ԁthatacommunity  correctionscenter,halfwayhouse,orotherformofcommunity  confinementmayconstitutea'penalorcorrectionalfacility'under \ theprovisionsof18U.S.C.3621(b)"andconcededthatinan 2 earlieropinionthe_OLC_Ԁhad"declinedtodrawadistinctionbetween X residentialcommunityfacilitiesandsecurefacilitieswithrespect . toBOP'sauthority[tocontractwiththeprivatesectortooperate   securefacilities]." !XGXXX  _0XXGXGX0TRY,3'X3' Letter 3' Letter3'T ? * ! X9VXXXG     jOaeW[+# X X9Vi#UnitedStatesCourtofAppeals [   FortheFirstCircuit  U [ XGX U p 5   `     h      p        `     h     A') ` dE<{ ` A |  No.032633 a     @  @`  @  @  @h MORRISM._GOLDINGS_,  ]     ` @ Plaintiff,Appellant,   @tt)v. e    DAVIDL._WINN_ԀandJOHNASHCROFT, a  @*@Defendants,Appellees.   A') ` dE<h` A i @*  @@` ` APPEALFROMTHEUNITEDSTATESDISTRICTCOURT N FORTHEDISTRICTOFMASSACHUSETTS $t [WilliamG.Young,UnitedStatesDistrictJudge]   A') ` dE<{` A   `     h      p    | @'Before a     8 @ 0@`    @ LipezandHoward,CircuitJudges,  ] and_Lisi_,*DistrictJudge. 3 A') ` dE<` A !     MorrisM._Goldings_onbriefprose. t #   GeorgeB.Henderson,II,AssistantUnitedStatesAttorney, J!$ withwhomMichaelJ.Sullivan,UnitedStatesAttorney,wasonbrief  "p% forappellees. "F&   CharlesW.RankinandPeter_Goldberger_forNational #' AssociationofCriminalDefenseLawyers,CriminalJusticeAct $( Board,andFamiliesAgainstMandatoryMinimumsFoundation,amici x% ) curiae. N&!*   *'ddd Xdd Xdd X(#(#,( dd ,( dd ,( dd +  'J#,'J#   SI^(#- @38238@S_September9,2004 4)$/ _ RHC *Z%0" @38238 @ R(^(#1  (* !    XGXX XG_______________________ +6'2    *OftheDistrictofRhodeIsland,sittingbydesignation. , (3? [+ [ [  _ # XGXXXG9#,    8GXXdd8*,X` XX* ` LIPEZ,CircuitJudge .MorrisGoldings,aninmateatthe  FederalMedicalCenterDevens,inAyer,Massachusetts,broughtthis x civilactionagainsttheWardenofFMCDevens,DavidWinn,and $t AttorneyGeneralJohnAshcroft,challengingachangeinpolicyby   theBureauofPrisons("BOP")thatlimitedhiseligibilityfor |  placementinacommunitycorrectionscenter("CCC")tothelastten ( x  percentofhissentence.Hesoughtdeclaratoryandinjunctive $  reliefenjoiningthedefendantsfromapplyingthenewpolicyto   him.Thedefendantsmovedtodismissthecomplaintforfailureto ,|  stateaclaimpursuanttoFederalRuleofCivilProcedure12(b)(6). ( Thedistrictcourtgrantedthemotion,andGoldingsappealed.   ` Thepolicychangethatisthesubjectofthislawsuitwas 0 requiredbyaDecember13,2002MemorandumOpinionfromthe , DepartmentofJusticeOfficeofLegalCounsel,whichdeclared  unlawfultheBOP'spriorpracticeofplacingfederalprisonersin 4 communityconfinementtoserveallorpartoftheirsentences. 0 GoldingsarguesthattheBOP'spolicyisbasedonanerroneous   interpretationoftwostatutoryprovisionsoftheSentencingReform 8!" Actof1984,18U.S.C.3621(b)and3624(c).Accordingtothis "4$ interpretation,thesetwoprovisionslimittheBOP'sdiscretionto $& placeprisonersinCCCstothelesserofthelastsixmonthsorten <&!( percentoftheirtermsofimprisonment.Althoughthechangein '8#* policyhasgeneratedafloodoflawsuitsinthefederaldistrict )$, courts,nocourtofappealshasyetspokenonthevalidityofthe @+&. BOP'snewpolicy.Wedosohereandconcludethatthenewpolicy  iscontrarytotheplainmeaningof18U.S.C.3621(b). \   I.  X   ` OnJuly17,2002,GoldingspledguiltyintheUnited   StatesDistrictCourtfortheDistrictofMassachusettstothree |  countsoftaxfraud,inviolationof18U.S.C.1341,1343,and ( x  1956.Hewassentencedtoathirtysixmonthtermofimprisonment. $  OnAugust28,2003,GoldingsreportedtoFederalMedicalCenter   Devens,thecorrectionalfacilitydesignatedbytheBureauof ,|  Prisons,tocommencehissentence. (  ` WhenGoldingsenteredfederalcustody,theBOPconsidered  prisonersforplacementincommunitycorrectioncentersnearthe 0 endoftheirsentences,foruptosixmonths,pursuanttoa , longstandingpractice. #  1      ׀Inaddition,theBOPhadapolicyof  placinginCCCssomelowrisk,nonviolentfederaloffenderswho 4 hadbeensentencedtoshortperiodsofimprisonment,includingfor 0 periodsofmorethansixmonths,particularlyifthesentencing   courtsorecommended. 8!"  ` OnDecember13,2002,aboutthreeandahalfmonthsafter  Goldingsbeganservinghissentence,theOfficeofLegalCounselof \ theUnitedStatesDepartmentofJustice(OLC)forwardedtoDeputy X AttorneyGeneralLarryD.Thompsonaneightpagememorandumthat   characterizedas"unlawful"theBOP'sdecadeslongpracticeof `  placingcertainoffendersinCCCstoserveallorpartoftheir  \  sentences.Itstated,inpart:   Yourofficehasinformedusthatwhenafederaloffender d  whomthe[BOP]deemstobelowriskandnonviolent :  receivesashortsentenceofimprisonment,BOPoften `  placesthatoffenderinacommunitycorrectionscenter, 6 halfwayhouse,orotherformof"communityconfinement,"   ratherthaninprison.Yourofficehasaskedusto  adviseyouwhetherBOPhasgeneralauthority,eitherupon h therecommendationofthesentencingjudgeorotherwise, > toplacesuchanoffenderdirectlyincommunity d confinementattheoutsetofhissentenceortotransfer : himfromprisontocommunityconfinementduringthe  courseofhissentence.   ` q!WeconcludebelowthattheBOPhasnosuchgeneral l authority.Asweexplain,BOP'sstatutoryauthorityto B implementsentencesofimprisonmentmustbeconstrued, h whereverpossible,tocomportwiththelegalrequirements > thatgovernthefederalcourts'sentencingorder.  Communityconfinementdoesnotconstituteimprisonment  forpurposesofasentencingorder,andBOPlacksclear p  generalstatutoryauthoritytoplaceincommunity F ! confinementanoffenderwhohasbeensentencedtoaterm !l" ofimprisonment.BOP'spracticeisthereforeunlawful. !B# U!c!%TheOLCMemorandumalsospecificallyconcludedthattheBOPlacked #% statutoryauthoritytotransferinmatestoCCCsformorethanten J% ' percentoftheirsentences,explainingthat"[t]heauthority &F") conferredundersection3624(c)totransferaprisonertoanon (#+ prisonsiteisclearlylimitedtoaperiod'nottoexceedsix N*%- months,ofthelast10percentumofthetimetobeserved,'andwe +J'/ eW ee e  seenobasisfordisregardingthistimelimitation."(internal  citationomitted). \  ` OnDecember16,2002,theDeputyAttorneyGeneraladopted X theOLCMemorandumandforwardedittotheDirectoroftheBOP,   withamemorandumthatdirectedtheBOPto"takeallsteps `  necessarytoensurethatitssentencingdecisionsareinfull  \  compliancewiththegoverninglaw"andtotransfertoprison   facilitiesalloffendersresidinginCCCswhohadmorethan150 d  daysremainingoftheirtermsofimprisonment.Thememorandum `  reiteratedthat    whileBOPdoeshavelimitedstatutoryauthorityin18 h U.S.C.3624(c)totransferanoffendertoaCCCprior > tohisreleasesoasto"affordtheprisonerareasonable d opportunitytoadjusttoandpreparefortheprisoner's : reentryintothecommunity,"therearefirmrestrictions  onsuchtransfers.Specifically,thetransfermaynot  exceedthelesserof(i)thelasttenpercentofthe l sentenceimposedontheoffender,i.e.,theperiodof B timeinwhichtheoffenderwascommittedtothecustody h oftheBOP,or(ii)sixmonths.TheOLCopinion > concludesthattherearenobasesfordisregardingthe  timelimitations.  q-- c-Id.at2(emphasisintheoriginal). F !  ` OnDecember20,2002,theAssistantDirectorsforthe !B# GeneralCounselandChiefProgramsDivisionoftheBOPissueda #% memorandumthatdirectedallBOPofficerstoimplementimmediately J% ' a"revisedprocedure"basedontheOLCMemorandum.Inaccordance &F") withthatdirective,WardenWinninformedtheinmatesoftheFMC (#+ DevensCampthatbecauseoftheOLCMemorandum,theBOPhadchanged N*%- itsproceduresfordesignatinginmatestoCCCs.Heexplainedthat +J'/ allfutureprereleaseCCCdesignationswouldbelimitedtothe  lasttenpercentofaninmate'sprisonterm. \  ` Afterexhaustinghisadministrativeremedies,Goldings, X whowasanattorneypriortohisconviction,filedthisactionpro   seintheUnitedStatesDistrictCourtfortheDistrictof `  Massachusetts.HiscomplaintallegedthatundertheBOPpolicyin  \  effectatthetimeofhissentencing,hewouldhavebeeneligible   fortransfertoaCCCasearlyasOctober7,2004,sixmonths d  beforehisstatutoryreleasedate.Incontrast,underthenew `  policy,histransferisnotpossibleuntilJanuary7,2005,whenhe   willhaveonlytenpercentofhissentencelefttoserve.The h complaintallegedthatthenewBOPprocedurewasincorrectasa d matterofstatutoryinterpretation,wasestablishedinviolationof  thenoticeandcommentrequirementsoftheAdministrativeProcedure l Act(APA),andviolatedGoldings'rightsundertheExPostFacto h andDueProcessClausesoftheUnitedStatesConstitution.  Goldingssoughtadeclarationthat3621(b)authorizestheBOPto p  transferhimtoaCCCorhalfwayhouseformorethanthelastten !l" percentofhissentence,ifappropriate,undertheBOP'spre "$ December2002policy,andaninjunctionenjoiningthedefendants t$& fromlimitinghiseligibilityforplacementinaCCCtothelast  &p!( tenpercentofhissentencebasedontheOLCMemorandum. '#*  ` ThedefendantsmovedtodismissGoldings'complaint x)$, pursuanttoFed.R.Civ.P.12(b)(6);onOctober23,2003,the $+t&. districtcourtgrantedthemotion.Inabriefrescript,thecourt  statedthatitagreedwiththereasonsexpressedbytwoother \ districtcourtsintheDistrictofMassachusettsinsimilarcases; X inparticular,thecourtcitedtheconclusionthat"theBOP's   revisedpolicymerelycorrectedanerroneousinterpretationof18 `  U.S.C.3624(c)."Thedistrictcourtdistinguishedtwoother  \  casesdecidedinthedistrictwhich"criticizedapplicationofthe   BOPpolicy"onthegroundthatthosecases"involvedassignmentsto d  aCCCatthebeginningofadefendant'ssentence...[and]were `  governedby18U.S.C.3621(b)and3625."Bycontrast,   "Goldings'case...involvestransfertoaCCCattheendofhis h sentence,andisaccordinglygovernedby18U.S.C.3624(c)." d Hence,thecourtfoundnoconstitutionalorstatutoryviolationand  rejectedGoldings'alternativeargumentsconcerningequitable l estoppelandreasonableexpectations.Thisappealfollowed. #  2       h    II.   A bXGXX XG 0 ` Ourreviewofthedistrictcourt'sdecisiongrantingthe ` (#` (# defendants'Rule12(b)(6)motiontodismissisdenovo.LaChapelle 8!" v.BerkshireLifeIns.Co.,142F.3d507,509(1stCir.1998).# XGXXbXGBA#bXGXX XGAt "4$ issueinthiscaseisthevalidityofthedefendants' $& interpretationof18U.S.C.3621(b)and# XGXXbXGB#bXGXX XG3624(c),thestatutory <&!( provisionsthatgoverntheBOP'sauthoritytodecidewherea  federaloffendermustserveallorpartofhisorhersentence.# XGXXbXGeC#bXGXX XG  p #  3      ׀ \ Inparticular,wemustconsiderwhethertheBOPhasauthorityunder X thestatutetotransferafederalprisonertoaCCCpriortothe   lesserofthelastsixmonthsortenpercentofhisorher `  sentence.x< #  4        \   ` "Wereviewdenovoanagency'sconstructionofastatute   thatitadministers,althoughsubjecttoestablishedprinciplesof d  deference."Griffithsv.INS,243F.3d45,49(1stCir.2003).If `  "thelanguageofthestatuteisplainandadmitsofnomorethan   onemeaning"orifthestatute'slegislativehistory"revealsan h unequivocalanswer"astothestatute'smeaning,"wedonotlookto d theinterpretationthatmaybegiventothestatutebytheagency  chargedwithitsenforcement."Arnoldv.UnitedParcelServ., l Inc.,136F.3d854,858(1stCir.1998)(internalquotationmarks h omitted);seeChevron,U.S.A.,Inc.v.NaturalRes.Def.Council,  Inc.,467U.S.837,84243(1984)(# XGXXbXGbD#bXGXX XG"IftheintentofCongressis p  clear,thatistheendofthematter;forthecourtaswellasthe !l" agency,mustgiveeffecttotheunambiguouslyexpressedintentof "$ Congress.").# XGXXbXG1J#bXGXX XG t$&  A.0 ` 18U.S.C.# XGXXbXGdK#bXGXX XGԀ# XGXXbXGK#bXGXX XG3624(c) ` (#` (#  ` "Asinanycaseofstatutoryconstruction,ouranalysis x beginswiththe'languageofthestatute.'"HughesAircraftCo.v. $t Jacobson,525U.S.432,438(1999).Section# XGXXbXG L#bXGXX XG3624(c)setsforththe   stepstheBOPisrequiredtotakeattheendofatermof |  imprisonmenttoeaseaprisonerbackintosociety.Itprovides: ( x   # XGXXbXGwM#c)Prereleasecustody. !ThebXGXX XGԀBureauofPrisonsshall, $  totheextentpracticable,assurethataprisonerserving   atermofimprisonmentspendsareasonablepart,notto   exceedsixmonths,ofthelast10percentumoftheterm d  tobeservedunderconditionsthatwillaffordthe :  prisonerareasonableopportunitytoadjusttoand ` preparefortheprisonersreentryintothecommunity. 6 Theauthorityprovidedbythissubsectionmaybeusedto   placeaprisonerinhomeconfinement.  rNdNN18U.S.C.# XGXXbXGN#bXGXX XGԀ# XGXXbXGQ#bXGXX XG3624(c).Accordingtothedefendants,# XGXXbXG$R#bXGXX XGԀ# XGXXbXGR#bXGXX XG3624(c) > authorizestheBOPtotransferinmatestoCCCsforuptoten : percentoftheirtermsofimprisonmentbutlimitsthatauthorityto  a reasonablepart,nottoexceedsixmonths,ofthelast10per B centumofthetermtobeserved. >  ` Goldingsagreesthat# XGXXbXGR#bXGXX XGԀ# XGXXbXGT#bXGXX XG3624(c)containslimiting   language.However,hearguesthatthestatutelimitsonlythe F!" BOPsstatutoryobligationto assurethataprisonerspendsa "B$ reasonablepartofthelasttenpercentofhistermofimprisonment $& underprereleaseconditions.Hecontendsthatthemandatory J&!( directiveof# XGXXbXGT#bXGXX XGԀ# XGXXbXGV#bXGXX XG3624(c)doesnotlimitthediscretionaryauthority 'F#* committedtotheBOPunder# XGXXbXGV#bXGXX XGԀ# XGXXbXGW#bXGXX XG3621(b),pursuanttowhichtheBOP )$, "maydesignateanyavailablepenalorcorrectionalfacility"asa N+&. placeofimprisonmentand"mayatanytime...directthe  transferofaprisonerfromonepenalorcorrectionalfacilityto \ another."# XGXXbXGW#bXGXX XGThelatterstatuteprovides,inrelevantpart: X TheBureauofPrisonsshalldesignatetheplaceofthe   prisonersimprisonment.TheBureaumaydesignateany   availablepenalorcorrectionalfacilitythatmeets `  minimumstandardsofhealthandhabitability....The 6   Bureaumayatanytime...directthetransferofa  \  prisonerfromonepenalorcorrectionalfacilityto  2  another.   YY# XGXXbXGcY#YbXGXX XG18U.S.C.3621(b).Underthenewpolicy,thedefendantstakethe d  viewthataCCCisnota"placeofimprisonment"forpurposesof# XGXXbXG.\#bXGXX XG `  # XGXXbXG]#bXGXX XG3621(b).Accordingtothedefendants,# XGXXbXGg]#bXGXX XGԀthediscretionthat# XGXXbXG]#bXGXX XG   # XGXXbXG*^#bXGXX XG3621(b)affordstheBOPindeterminingaprisoners placeof h imprisonmentdoesnotincludediscretiontoplacetheprisonerin d aCCC,eitherattheoutsetorattheendofaprisonersterm.# XGXXbXG^#bXGXX XGԀ  Therefore,thedefendantsclaimthat# XGXXbXG_#bXGXX XGԀ# XGXXbXG8`#bXGXX XG3624(c)aloneauthorizes l placementinaCCC,limitingthatplacementtothelesserofthe h lasttenpercentorsixmonthsoftheprisoner'stermof  imprisonment.# XGXXbXG{`#bXGXX XG p   ` Thedistrictcourtdidnotaddressthevalidityofthe !l" defendants'interpretationof# XGXXbXGa#bXGXX XGԀ# XGXXbXGjb#bXGXX XG3621(b)# XGXXbXGb#bXGXX XGbecauseitconcludedthat "$ thisprovisionwasimplicatedonlybyassignmentstoaCCCatthe t$& beginningofaprisoner'ssentence.Inthecourt'sview,  &p!( "Goldings'case...involvestransfertoaCCCattheendofhis '#* sentence,andisaccordinglygovernedby18U.S.C.# XGXXbXGb#bXGXX XGԀ# XGXXbXGd#bXGXX XG3624(c)."We x)$, disagreewiththedistrictcourtthatGoldings'claimmaybe $+t&. resolvedonthebasisof# XGXXbXGd#bXGXX XGԀ# XGXXbXGe#bXGXX XG3624(c)alone,withoutalsoconsidering  theapplicabilityof3621(b)toCCCplacements.# XGXXbXGe#bXGXX XGԀThereisno \ languagein# XGXXbXGf#bXGXX XGԀ# XGXXbXGg#bXGXX XG3621(b)# XGXXbXGZg#bXGXX XGԀthatlimitstheBOP'sdesignationauthority X totheprisoner'sinitialplaceofimprisonment.Itexpressly   providesthat"[t]he[BOP]mayatanytime...directthe `  transferofaprisonerfromonepenalorcorrectionalfacilityto  \  another."(emphasisadded).# XGXXbXGg#bXGXX XGԀThus,onitsface,# XGXXbXG@i#bXGXX XGԀ# XGXXbXGi#bXGXX XG3621(b)permits   theBOPtodirectGoldings'transfertoaCCCpriortothelastten d  percentofhisprisonterm,unless,asthedefendantsargue,# XGXXbXGi#bXGXX XG `  # XGXXbXGj#bXGXX XG3621(b)doesnotapplytoCCCplacementsatallbecauseaCCCis   nota"placeofimprisonment."Inavoidingthisargumentofthe h defendants,thedistrictcourtessentiallyusedthelimiting d languageof# XGXXbXG:k#bXGXX XGԀ# XGXXbXGl#bXGXX XG3624(c)torewritetheunambiguouslanguageof# XGXXbXGl#bXGXX XG  # XGXXbXG?m#bXGXX XG3621(b)sothat"atanytime"nolongermeans"atanytime,"but l rather"onlyforthelesserofthelastsixmonthsortenpercent h ofaprisoner'stermofimprisonment."Thesignificanceofthis  rewritingcannotbeignored.Indeed,thedefendantsdonotargue p  onappealthedistrictcourt'spositionthatGoldings'caseonly !l" requiresconsiderationof# XGXXbXGm#bXGXX XGԀ# XGXXbXGo#bXGXX XG3624(c).Thus,wecannotavoid "$ addressingtherelationshipbetween# XGXXbXGo#bXGXX XGԀ# XGXXbXGp#bXGXX XG3621(b)and# XGXXbXGp#bXGXX XGԀ# XGXXbXGq#bXGXX XG3624(c).# XGXXbXGaq#bXGXX XGd #  5      # XGXXbXGq#bXGXX XGԀ t$&  ` Byits# XGXXbXG@r#bXGXX XGplainlanguage,3624(c)# XGXXbXGr#bXGXX XGprovidesthattheBOP  "shalltakesteps"to"assure"thatprisonersserveareasonable \ partofthelasttenpercentoftheirprisonterms"under X conditionsthataffordtheprisonerareasonableopportunityto   adjusttoandpreparefortheprisoner'sreentryintothe `  community."Thislanguageimposesanaffirmativeobligationonthe  \  BOPtotakestepstofacilitateasmoothreentryforprisoners   intotheoutsideworld.Itistruethatthisobligationis d  qualified.Section3624(c)doesnotmandateplacementinaCCC `  priortorelease,anditrequirestheBOPtoassurethataprisoner   spendsthelastpartofhissentenceunderprereleaseconditions h onlyifpracticable.However,aqualifiedobligationdiffersfrom d agrantofdiscretion.Under# XGXXbXG s#bXGXX XG3624(c),theBOPmustensure  placementunderprereleaseconditionsexceptwherenosuch l placementispracticable.AstheTenthCircuithasexplained, h # XGXXbXG5w#bXGXX XG3624(c)operatesas"alegislativedirectivefocusingonthe  developmentofconditionstofacilitateaninmate'sadjustmentto p  freesociety,whatevertheinstitutionofprereleaseconfinement." !l" # XGXXbXGVx#bXGXX XGProwsv.Fed.BureauofPrisons,981F.2d466,470(10thCir. "$ 1992).t #  6      ׀TheprovisionthusreflectsCongress'sintenttoimpose  upontheagencyadutytoprepareprisonersforreentryintothe \ community,withouttyingthehandsofadministratorsindeciding X whereprisonersaretobeplaced.TheBOPisnotfreetodisregard   thatduty.Ifitdidso,judicialreliefmightbeavailable.See `  id.at649(suggestingthatalthoughprisonerdidnothavean  \  enforceablerightunder3624(c)toplacementinaCCC,hemight   havehadavalidcauseofactionbasedontheclaimthathis d  placement# XGXXbXGy#bXGXX XG"constitute[d]aviolationofabroaderobligationto `  provideatleastsomeprereleasetreatmentconducivetosuccessful   reentryintothecommunity,whateverthefacilityof h incarceration"). d  ` Atthesametime,we# XGXXbXGJ}#bXGXX XGagreewiththeTenthCircuitthat  3624(c)'smandate"tofacilitatetheprisoner'spostrelease l adjustmentthroughtheestablishmentofsomeunspecifiedpre h releaseconditions...acceptsasapremisethatthebroader  statutoryschemeconcerningtheBureau'sgeneralplacement p  authorityremainsintactandeffective."Id.# XGXXbXG~#bXGXX XGԀ# XGXXbXG#bXGXX XGat46970.Thus, !l" while# XGXXbXG#bXGXX XG3624(c)clearlylimitstheBOP'sdiscretionnottoconsider "$ communityconfinementorotherprereleasealternativesattheend t$& ofaprisoner'sprisonterm,itdoesnotprohibittheBOPfrom  doingsoearlierpursuanttoadifferentgrantofdiscretionary \ authority.s #  7       X  B.0 ` 18U.S.C.# XGXXbXGk#bXGXX XG3621(b)  ` (#` (#  ` # XGXXbXG#bXGXX XGHavingdeterminedthat# XGXXbXG#bXGXX XG3624(c)doesnotprohibitthe |  BOPfromtransferringprisonerstoaCCCpriortothelesserofsix ( x  monthsortenpercentoftheendoftheirprisonterms,wemust $  nextconsiderwhether# XGXXbXGo#bXGXX XG3621(b)confersupontheBOPdiscretionary   authoritytoexecutesuchtransfers.Webeginbyconsideringthe ,|  languageofthestatute: (  X (a)CommitmenttothecustodyoftheBureauofPrisons .  !Apersonwhohasbeensentencedtoatermof h imprisonment...shallbecommittedtothecustodyof > theBureauofPrisons.... d  (b)Placeofimprisonment. !TheBureauofPrisonsshall : designatetheplaceoftheprisoner'simprisonment.The  Bureaumaydesignateanyavailablepenalorcorrectional  facilitythatmeetsminimumstandardsofhealthand z habitabilityestablishedbytheBureau...thatthe  Bureaudeterminestobeappropriateandsuitable,  considering! \  (1) theresourcesofthefacilitycontemplated; 2  (2) thenatureandcircumstancesoftheoffense; f  (3) thehistoryandcharacteristicsoftheprisoner; J  (4) anystatementbythecourtthatimposedthesentence!  .  (A) concerningthepurposesforwhichthesentenceto   imprisonmentwasdeterminedtobewarranted;or    (B) recommendingatypeofpenalorcorrectionalfacility |   asappropriate;and `    (5) anypertinentpolicystatementissuedbythe 6  SentencingCommissionpursuanttosection994(a)(2)of j  title28.... @  TheBureaumayatanytime,havingregardforthesame   matters,directthetransferofaprisonerfromonepenal   orcorrectionalfacilitytoanother. r   XGoldingsarguesthatthissectionprovidesabroadgrantof n authoritytotheBOPinitiallytodesignate,andsubsequentlyto  transfer,aprisonerto"anyavailablepenalorcorrectional v facility."HefurtherclaimsthataCCCisa"penalor "r correctionalfacility"andthat,therefore,theBOPhasstatutory  authoritytotransferapetitionertoaCCCatanytimeduringhis z orhertermofimprisonment.Thedefendantsdonotcontendthata &v communitycorrectioncenterisnota"correctionalfacility# XGXXbXG#bXGXX XG." #  8      # XGXXbXGz#bXGXX XGԀ "  Instead,theyarguethataCCCisnota"place...of ~!" imprisonment"asrequiredbythefirstsentenceof# XGXXbXG#bXGXX XG3621(b),and *#z$ thatthesecondsentenceoftheprovisionislimitedbythefirst.  Thus,whendesignatingtheplacewhereaprisonerwillserveallor \ partofhisorhertermofimprisonment,theBOPmaychoosefrom X amongthesubsetofpenalorcorrectionalfacilitiesthatqualify   asplacesofimprisonment.Inotherwords,a"placeof `  imprisonment"isapenalorcorrectionalfacilitythatisaplace  \  ofimprisonment.    ` Thedefendants'circulardefinitionisunsupportedbythe d  plainlanguageof3621.# XGXXbXG#bXGXX XGSubsection3621(a)directs"persons" `  sentencedtoserveatermofimprisonment"tothecustodyofthe   BureauofPrisons,"therebyrenderingthem"prisoners"andhence h "imprisoned"forthepurposesof# XGXXbXG#bXGXX XG3621(b).Pursuantto3621(a), d itisnottheplaceofimprisonmentthatdetermineswhetheran  offenderisimprisonedbutthefactandnatureoftheoffender's l sentence("sentencedtoatermofimprisonment")andtheidentity h ofthecustodian(theBOP).# XGXXbXG5#bXGXX XGSeeUnitedStatesv.Cintron  Fernandez,356F.3d340,346(1stCir.2004)(holdingthatoffender p  sentencedtoatermofimprisonmentandsubsequentlydetainedin !l" hishomewasnot"imprisoned"becausetheBOPneverassumedcustody "$ oftheoffenderasrequiredby18U.S.C.# XGXXbXGʗ#bXGXX XG3621# XGXXbXG#bXGXX XG);cf.Koray,# XGXXbXGə#bXGXX XG515 t$& U.S.at6365(recognizingthattherelevantcriteriafor  &p!( determiningwhetheracourtimposedperiodofpretrialdetention '#*  inaCCCorotherfacilitymaybecreditedagainstatermof x)$, imprisonmentisnotthetypeorplaceofconfinementbutwhether  thedefendantisinBOPcustody). \   ` Thefirstsentenceof# XGXXbXG%#bXGXX XG3621(b)imposesadutyontheBOP X toplacethoseprisonerswhohavebeencommittedtothecustodyof   theBOP.Itdoesnotfurtherdefine"placeofimprisonment"and `  certainlydoesnotprovidethattheBOPmaynotplaceprisonersin  \  aCCC.Thesecondsentenceofthissubsectiongivescontenttothe   first;itexplainswhereprisonersmaybeplacedandgrantstheBOP d  discretionaryauthoritytochoosethatplaceofimprisonmentfrom `  among"any"availablepenalorcorrectionalinstitution.See,   e.g.,UnitedStatesv.King,338F.3d794,798(7thCir.2003) h ("Under18U.S.C.3621(b),theBOPisauthorizedtohousea d prisoner...anywhereitdeemsappropriate.")(emphasisadded);  Prows,981F.2dat469n.3("Under18U.S.C.3621(b),theBureau l ofPrisons...maydirectconfinementinanyavailablefacility h andmaytransferaprisonerfromonefacilitytoanotheratany  time.").# XGXXbXG:#bXGXX XGԀThatbroaddiscretionislimitedonlybytherequirement p  thattheplaceofimprisonmentbea"penalorcorrectional !l" facility"andthatit"meetminimumstandardsofhealthand "$ habitability."SeeCintronFernandez,356F.3dat346("According t$& to18U.S.C.# XGXXbXGC#bXGXX XG# XGXXbXG#bXGXX XGԀ3621(b),theBureauissupposedtochoosea'penal  &p!( orcorrectionalfacility'anddeterminethatthefacilitymeets '#* enumeratedminimumstandardsofhealthandhabitability."). x)$, # XGXXbXG(#bXGXX XGCongresscouldhave,butdidnot,excludeanyparticulartypeof $+t&. penalorcorrectionalfacilityfromtheBOP'sdesignationor  transferauthority.Instead,itdefined"placeofimprisonment" \ broadlybutunambiguously,as# XGXXbXGX#bXGXX XG"anypenalorcorrectionalfacility" X thatmeetsminimumstandardsofhealthandhabitability.Hence,   therelevantquestioninconsideringwhethertheBOPhasdiscretion `  under# XGXXbXG#bXGXX XGԀ# XGXXbXG#bXGXX XG3621(b)totransferGoldingstoaCCCiswhetheraCCC  \  qualifiesasa"penalorcorrectionalfacility."Cf.id.at346   n.6(notingwithoutdeciding"theissueofwhether[theprisoner's] d  homecouldeverqualifyasa'penalorcorrectionalfacility'under `  18U.S.C.3621(b)").# XGXXbXG(#bXGXX XGԀIfitdoes,thenthetextofthestatute   dictatesthatitalsoqualifiesasa"placeofimprisonment." h Sinceacommunitycorrectionsfacilityisclearlyacorrections d facility(and,asnoted,theOLCMemorandumdidnotsuggest  otherwise),theBOPmayplaceprisonerstherepriortothelesser l ofthelastsixmonthsortenpercentoftheirtermsof h imprisonment.# XGXXbXGߨ#bXGXX XGm #  9      ׀# XGXXbXG#bXGXX XG  # XGXXbXG#bXGXX XG ` Thedefendantsinsist,however,thatthisreadingof  # XGXXbXG#bXGXX XG3621(b)"cannotbesquaredwiththeplainmeaningof3624(c)and \ elementaryrulesofstatutoryconstruction"becauseitwould X "effectivelyrender# XGXXbXG#bXGXX XG3624(c)anullity."Inotherwords,"[i]t   simplycannotbetruethat# XGXXbXG#bXGXX XG3624(c)limitsplacementinaCCCto `  theshorterofsixmonthsortothelast10percentofthe  \  prisoner'sterm,andalsobetruethat# XGXXbXGB#bXGXX XG3621(b)allowsplacement   inaCCCatanytimeduringtheprisoner'ssentence."Defendants' d  incredulityapparentlyreflectsarefusaltorecognizethe `  distinctionbetweenaqualifiedobligationimposedontheBOPand   agrantofdiscretionaryauthoritytoit.Aswehavealready h noted,# XGXXbXG8#bXGXX XG3624(c)limitstheBOP'sobligationtoassurethata d prisonerspendsthelastpartofhissentenceunderprerelease  conditions,whetherinaCCCorelsewhere.Itdoesnotlimitthe l agency'sdiscretionaryauthoritytoplaceaprisonerinaCCCat h anyothertimeduringtheprisoner'ssentence.Therefore,  # XGXXbXG#bXGXX XG3621(b)and# XGXXbXG#bXGXX XG3624(c)donot,asdefendantssuggest,"authorizetwo p  analyticallyseparatebutpracticallyredundantsystemsfor !l" administeringcommunityconfinement."Moreover,# XGXXbXG8#bXGXX XG3624(c)# XGXXbXGJ#bXGXX XGdirects "$ theBOPtoassurethata"prisonerservingatermofimprisonment t$& spendareasonablepartofthatterm[ofimprisonment]"underpre  &p!( releaseconditions,including(expressly)homedetentionand '#* (impliedly)communityconfinement.If,asbothpartiesagree,a  CCCmaybeaplaceofimprisonmentduringthelasttenpercentof \ aprisoner'stermofimprisonment,itwouldbeincongruousto X concludethatthesameCCCmaynotbeaplaceofimprisonment   duringanyportionofthefirstninetypercentofthatterm.# XGXXbXG#bXGXX XG `   ` Thedefendantsalsofindsupportfortheirinterpretation  \  of3621(b)# XGXXbXG{#bXGXX XGin18U.S.C.1791(d)(4),whichprohibitsthe   provision# XGXXbXG<#XGXX XGorpossessionofcontrabandinprisonanddefines d  "prison,"forthepurposesofthatsection,as"aFederal `  correctional,detention,orpenalfacility."Accordingtothe   defendants,"[t]hisdefinitionsuggeststhata'correctional h facility'and'penalfacility'are,first,synonymous,and,second, d theequivalentofa'prison,'whereinmatesgenerallyliveincells  behindbarsand!unlikecommunityconfinement!arenotfreeto l leaveforvariouspurposes."Wedonotunderstandthelogicof h thisargument.Section1791(d)explicitlyadoptsabroad  definitionof"prison"forthespecificpurposesofthatsection, p  whichincludesallfederalcorrectional,detention,andpenal !l" facilities!justas3621(b)definesthedifferentterm,"place "$ ofimprisonment,"broadlytoincludethosesamecorrectionaland t$& penalfacilities.# XGXXXGθ#XGXX XGԀNowheredoes1791(d)definea"penalor  &p!( correctionalfacility"asafacilityinwhichinmatesareconfined '#*  tocellsbehindbarswithouteverbeingallowedtoleave. x)$,  ` Indeed,thedefendants'interpretationof# XGXXXG_#bXGXX XG3621# XGXXbXGʾ#XGXX XGԀis   inconsistentwiththeSentencingReformActandtheordinary \ meaningofmoderndayimprisonment.T# XGXXXG#bXGXX XGheBOPisexpressly X authorizedtoallowprisonerstoleavetheir"placeof   imprisonment"forlimitedperiodsoftimetoworkorpursue `  educationinthecommunity"whilecontinuinginofficialdetention  \  atthepenalorcorrectionalfacility."18U.S.C.3622(c).This   kindofcontrolledexposuretothecommunityisentirelyconsistent d  withthemeaningofimprisonmentunderthestatute.# XGXXbXG#bXGXX XGSeeByrdv. `  Moore,252F.Supp.2d293,301(W.D.N.C.2003)(Whileinmatesof   CCCs# XGXXbXG4#bXGXX XGԀ"areabletoleaveundersomelimitedcircumstancesas h outlinedby18U.S.C.# XGXXbXG#bXGXX XG3622,theyarenotfreetocomeandgoas d theyplease.Theyare'imprisoned.'");seealso# XGXXbXG#bXGXX XGIacaboniv.United  States,251F.Supp.2d1015,1029(D.Mass.2003)( Inamodern l penalsystem,itistherareprisonerwhoisimmuredbehindsix h footthickwalls365daysayearlikesomecharacteroutofaDumas  romance.).# XGXXbXGe#bXGXX XGԀ# XGXXbXG#bXGXX XG p   ` Thedefendantsfurtherarguethat3621(b)shouldbe !l" construedinlightof# XGXXbXG.#bXGXX XG18U.S.C.3563(b)(11)# XGXXbXG#bXGXX XGԀoftheSentencing "$ ReformAct,whichauthorizescourtstosentenceoffenderstoaterm t$& ofprobation,afine,oratermofimprisonment.Theyarguethat  &p!( thissectionallowscourtstorequireadefendant,asacondition '#* ofprobation,to"resideat,orparticipateintheprogramof,a x)$, communitycorrectionsfacility."18U.S.C.# XGXXbXGP#bXGXX XGԀ3563(b)(11).They $+t&. jOa je j  furthernotethatplacementinaCCCmaybeauthorizedasa  conditionofatermofsupervisedrelease.See18U.S.C. \ 3583(a).Becauseasentenceofprobationisanalternativeto,and X maynotbeimposedatthesametimeas,asentenceofimprisonment,   18U.S.C.# XGXXbXGA#bXGXX XG3561(a)(3),andbecauseatermofsupervisedrelease `  occursafteratermofimprisonment,thedefendantsarguethata  \  CCCcannotbea"placeofimprisonment."    ` Again,thedefendants'argumentisunpersuasive.The d  SentencingReformActaddressesthethreetypesofsentencesthat `  courtsmayimpose;itdoesnotlimitthescopeoftheBOP's   authoritytodesignatetheplacewhereanoffendersentencedtoa h termofimprisonmentmustservethatsentence.# XGXXbXGX#bXGXX XGThefactthat d residenceatorparticipationinaprogramofaCCCmayserveasa  conditionofprobationorsupervisedreleaseforsomeoffenders l doesnotmeanthataCCCcannotbeaplaceofimprisonmentfor h otheroffenders,basedonthenatureoftheirsentencesandwhether  theyaresubjecttothecontroloftheBOP.# XGXXbXG#bXGXX XGԀSeeKoray,515U.S.at p  61,63(detention# XGXXbXG#bXGXX XGinaCCCsubjecttothecontroloftheBOPmaybe !l" creditedagainstatermofimprisonmentunder18U.S.C.3585, "$ whereasconfinementinthesamefacilityasaconditionofbailmay t$& notbecause"defendantswhoare'detained'or'sentenced'always  &p!( remainsubjecttothecontroloftheBureau"). '#* # XGXXbXGi#XGXX XG ` Finally,wenotethattheOLC'sinterpretationof"place x)$, ofimprisonment"asexclusiveofCCCsreliedprimarilyonalineof $+t&. casesinwhichcourtshaveheldthatconfinementinaCCCisnot  imprisonmentasthattermisusedin5C1.1oftheUnitedStates \ SentencingGuidelines,whichgovernsthekindsofsentencesthat X maybeimposedbycourtsforoffenderswithinZoneCorDofthe   Guidelines.Althoughwerecentlyjoinedthislineofauthority,we `  cautionedthat"ourinterpretationofimprisonmentdoesnot  \  necessarilyapplytoprovisions[oftheSentencingGuidelines]   otherthan# XGXXXG8#bXGXX XG# XGXXbXG#XGXX XG5C1.1."CintronFernandez,356F.3dat347&n.7 d  (explainingthatdefinitionsoftermsintheGuidelines"arenot `  designedforgeneralapplicability").Moreover,asthedefendants   appeartorecognizeintheirbrieftothiscourt,totheextent h that3621(b)conflictswithasectionoftheSentencing d Guidelines,theGuidelinesmustyield.UnitedStatesv.LaBonte,  520U.S.751,757(1997).Also,aswehaverecognized,the l Guidelinesarebindingonlyonthecourts.Theydonotaddressthe h BOP'suseofitsdiscretionasthecustodianoffederalprisoners  todesignatetheappropriateplaceofimprisonment.SeeCintron p  Fernandez,356F.3dat347# XGXXXG#XGXX XGԀn.7&346n.6(holdingthat"inthe !l" contextof5C1.1,theminimumhalftermof'imprisonment'cannotbe "$ satisfiedbyhomedetentionorbycommunityconfinement"while t$& expresslyreservingthequestionofwhetherthehomecanever  &p!( qualifyasa"penalorcorrectionalfacility"whichtheBOPmay '#*  designateasa"placeofimprisonment"under18U.S.C.3621(b)).# XGXXXG#bXGXX XG x)$,  ` Weendourconsiderationofthedefendants'arguments   here.Under# XGXXbXG#XGXX XG# XGXXXGf#bXGXX XG3621(b),theBOPhasdiscretionaryauthorityto \ designateanyavailablepenalorcorrectionalfacilitythatmeets X minimumstandardsofhealthandhabitabilityastheplaceofa   prisoner'simprisonment,andtotransferaprisoneratanytimeto `  suchafacility.Acommunitycorrectioncenterisacorrectional  \  facilityandthereforemayserveasaprisoner'splaceof   imprisonment."Whenasnow,theplainlanguageofastatute d  unambiguouslyrevealsitsmeaning,andtherevealedmeaningisnot `  eccentric,courtsneednotconsultotheraidstostatutory   construction."UnitedStatesv.Meade,175F.3d215,219(1stCir. h 1999).BecausetheintentofCongressisclearinitsgrantof d discretionaryauthoritytotheBOPtotransferaprisonertoany  availablepenalorcorrectionalfacility,wemustgiveeffectto l thatintent.Chevron,467U.S.at843.Thedefendants' h interpretationof# XGXXbXG#bXGXX XGԀ3621(b)iscontrarytotheplainmeaningofthe  statute;itisnotentitledtojudicialdeference.# XGXXbXG#bXGXX XG\ #  10      # XGXXbXGR#bXGXX XG p    III.  !l" " ` Fortheforegoingreasons,weholdthat18U.S.C. "4$ 3621(b)authorizestheBOPtotransferGoldingstoaCCCatany $& timeduringhisprisonterm.TheBOP'sdiscretionaryauthority  under3621(b)# XGXXbXG#bXGXX XGԀisnotsubjecttothetemporallimitationsof# XGXXbXG#bXGXX XG18 \ U.S.C.# XGXXbXG#bXGXX XG3624(c).# XGXXbXGg#bXGXX XGԀWevacatetheorderofthedistrictcourt X grantingthedefendants'motiontodismissandremandforfurther   proceedingsconsistentwiththisopinion. `    ` Soordered. # XGXXbXG#F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F  F    \   `  @* @+&. Ї   APPENDIX    18U.S.C.3621.Imprisonmentofaconvictedperson x (a)CommitmenttothecustodyoftheBureauofPrisons. !Aperson @ whohasbeensentencedtoatermofimprisonmentpursuanttothe $ t provisionsofsubchapterDofchapter227shallbecommittedtothe  J custodyoftheBureauofPrisonsuntiltheexpirationoftheterm   imposed,oruntilearlierreleasedforsatisfactorybehavior   pursuanttotheprovisionsofsection3624. |    (b)Placeofimprisonment. !TheBureauofPrisonsshalldesignate R   theplaceoftheprisoner'simprisonment.TheBureaumaydesignate 6  anyavailablepenalorcorrectionalfacilitythatmeetsminimum  \  standardsofhealthandhabitabilityestablishedbytheBureau, 2  whethermaintainedbytheFederalGovernmentorotherwiseand   whetherwithinorwithoutthejudicialdistrictinwhichtheperson   wasconvicted,thattheBureaudeterminestobeappropriateand d  suitable,considering! :  (1) theresourcesofthefacilitycontemplated; `  (2) thenatureandcircumstancesoftheoffense; D  (3) thehistoryandcharacteristicsoftheprisoner; (  (4) anystatementbythecourtthatimposedthesentence!    (A) concerningthepurposesforwhichthesentencetoimprisonment  wasdeterminedtobewarranted;or   (B) recommendingatypeofpenalorcorrectionalfacilityas Z appropriate;and >  (5) anypertinentpolicystatementissuedbytheSentencing d Commissionpursuanttosection994(a)(2)oftitle28. H Indesignatingtheplaceofimprisonmentormakingtransfersunder  thissubsection,thereshallbenofavoritismgiventoprisonersof z highsocialoreconomicstatus.TheBureaumayatanytime,having P regardforthesamematters,directthetransferofaprisonerfrom & v  onepenalorcorrectionalfacilitytoanother.TheBureaushall  L! makeavailableappropriatesubstanceabusetreatmentforeach !"" prisonertheBureaudetermineshasatreatableconditionof "# substanceaddictionorabuse.  ~#$ ... T$% 18U.S.C.3624.ReleaseofaPrisoner 'P"( (c)Prereleasecustody. !TheBureauofPrisonsshall,tothe ($* extentpracticable,assurethataprisonerservingatermof )$+ imprisonmentspendsareasonablepart,nottoexceedsixmonths,of *%, thelast10percentumofthetermtobeservedunderconditions X+&- thatwillaffordtheprisonerareasonableopportunitytoadjustto .,~'. andpreparefortheprisoner'sreentryintothecommunity.The  authorityprovidedbythissubsectionmaybeusedtoplacea  prisonerinhomeconfinement.TheUnitedStatesProbationSystem \ shall,totheextentpracticable,offerassistancetoaprisoner 2 duringsuchprereleasecustody. X _ S ^$%&()*+,(03i N8 X XGc   N8... . # N8  c-## XGX  N8#@  ConcurringOpinionFollows   n  ` HOWARD,CircuitJudge  (concurring). WhethertheBureau  ofPrisons'("BOP")policyoughttobesustainedpresentsa x difficultquestion.Ijointhecourt'streatmentofthisquestion, $t andIwriteseparatelytoemphasizeapointthatisthedecisional   fulcrumforme.Beyondthis,Ialsoincludeanobservationonthe |  scopeofourholding. ( x   ` Wearenotpresentedwithapurequestionofstatutory 'w  interpretation.Rather,wearerequiredtodecidewhetherBOP's #  interpretationofthestatuteisapermissiblereadingofthetext.   SeeRenov.Koray,515U.S.50,62(1995)(statingthatBOP's +{ interpretationmustbegranteddeferenceunlessthe"statutecannot ' bear"itsinterpretation).Ifweareunsureofthecorrect  interpretation,wemustdefertoBOP'sreading.Id.at61.As / explainedintheleadopinion,thecriticalquestioniswhetherthe + phrase"theplaceof...imprisonment",asusedin3621(b),can  bereadtoexcludeplacementinaCommunityCorrectionCenter 3 ("CCC").Anteat1516.Since2002,BOPhasinterpretedthe /  statuteinthisway.Id.at4.AlthoughIthinkthatthe !" questionisclose,IagreethatBOP'sconstructionis,intheend, 7#$ notadequatelysupported. X  $3 &  ` AcommontypeofCCCisa"halfwayhouse"which &2"( "provide[s]suitableresidence,structuredprograms,jobplacement, (#* andcounseling,whiletheinmates'activitiesareclosely :*%, monitored."SeeBOPProgramStatement7310.04(1998).4o YO  5  6YO  7 # ԀPrisoners +6'. residingatmostCCCsarepermittedtoleavethefacilityfor  employmentandcertainothercommunityactivities.Id.Ifwe \ were,asthegovernmenturges,tosimplyapplythecommon X definitionof"imprisonment"todecidewhetheritincludes   placementinaCCC,thestatutewouldbeambiguous.Imprisonment `  canbedefinedas"constraintofapersoneitherbyforceorby  \  suchothercoercionasrestrainshimwithinhislimitsagainsthis   will."Webster'sThirdNewInt'lDictionaryat1137(1993).Under d  BOP'sCCCprogram,prisonersarefreetoleavemanyCCCfacilities `  forcertainpartsofthedaybutnotatothertimes.Thus,whether   prisonersresidinginCCCsare"imprisoned"mayconceivablybe h determined,astheleadopinionsays,bywhetheroneisinthe d custodyofBOP,ormaydependonthetypeofCCCinvolved,ormay  evenarguablydependonthetimeofdayatwhichthequestionis l asked.q #  11       h  ` Thelegislativehistoryof3621(b)isalsonot g conclusive.Thepredecessorversionof3621(b)providedthat   prisonerscouldbeassignedortransferredtoCCCs.Congress o!" explicitlygrantedauthoritytotheAttorneyGeneral(andviahim #k$ toBOP)toassignortransferaprisonertoany"suitable... $ & facility"anddefinedfacilitytoinclude"aresidentialcommunity  treatmentcenter."18U.S.C.4082(replacedby18U.S.C. \ 3621(b));Pub.L.89176.SeeUnitedStatesv.Tkabladze,No. X 0301152,2003WL22836502at*3(C.D.Cal.May16,2003)(stating   that"residentialcommunitytreatmentcenter"istheoldtermfor `  aCCC).  \   ` AspartoftheSentencingReformActof1984,Congress  [  replaced4082with3621(b).r #  12      ׀Thenewprovisionchangedthe   term"facility"to"penalorcorrectionalfacility"anddeletedthe c  "facility"definitionwhichhadexpresslyincludedCCCs.The _ deletionof4082's"facility"definitionfrom3621(b)could   suggestthatCongressintendedtoredefine"facility"toexclude g CCCs.SeeTaylorv.UnitedStates,495U.S.575,590(1990) c (statingthattheomissionofapreexistingdefinitionoften  indicatesthatCongressrejectedthedefinition). k  ` Ontheotherhand,theSenateJudiciaryCommitteeReport j accompanyingtheSentencingReformActstronglysuggestsotherwise.  f  SeeS.Rep.No.225,reprintedin1984U.S.C.C.A.N.3182,3324. !" Thereportemphasizedthat3621(b)wasintendedto"follow n#$ existinglaw."Id.Indeed,thereportexpresslystatedthat %j & 3621(b)continuedBOP'sdiscretionaryauthoritytodesignatea  suitableplaceofconfinementforeachprisonerandthatthe \ proposedprovisioncreatedonlyonenewrequirement(i.e.,thatBOP X mustassignprisonerstofacilitiesthatmeetminimumhealthand   habitabilitystandards).Id.at332425.Thus,thereport `  indicatesthat,aftertheenactmentof3621(b),BOPretainedits  \  preexistingauthoritytoassignortransferprisonerstoCCCsat   anytimeduringtheirsentences. d   ` Thesubsequentlegislativehistoryof3621(b),however, c  suggeststheexactoppositeinterpretation.Congressreconsidered _ 3621(b)aspartofthedebateovertheCrimeControlActof1990.   Theoriginalversionofthisbillproposedamending3621(b)to g grantBOPtheauthoritytoassignortransferprisonerstoany c "suitableandappropriateinstitution,facilityorprogram...."  H.R.5269,101stCong.1404(1990).AccordingtotheHouse k JudiciaryCommitteeReportaccompanyingH.R.5269,underexisting g law,"[T]heBureauofPrisonsc[ould]onlyplaceaninmateina   CommunityCorrectionCenterforuptosixmonthsorforthelast10 o!" percentofhisorhersentence,whicheverisshorter."H.Rep.101 #k$ 681,reprintedin1990U.S.C.C.A.N.6472,6546.Thereport $ & proceededtoexplainthat1404broadenedBOP'sauthorityinthis s&!( regard: (o#* " 0 ` Section1404restorestheBureauof *n%, Prisons'previouslyexistingauthorityto *D&- designateanappropriateplacefor +'. offenderstoservetheirsentences,  includingCommunityCorrectionCenters..  ..TheBureauofPrisonshasdeveloped \ highlycontrolledprogramsinthe 2 communitythatprovideeffective,punitive X sanctionsforcertainnonviolent . offenderswhoatsomepointintheir   prisonsentencewouldnotbeappropriately   incarceratedinatraditionalprison `  setting....NewFederaldrugandcrime 6   lawsandFederalsentencingguidelines  \  haveresultedinahighlydiverseprison  2  population....Section1404provides   theBureauofPrisonswiththenecessary   flexibilitytomanagethisincreasingly d  diverseFederalinmatepopulation.: ` `  " 1990U.S.C.C.A.Nat6546.Thus,theauthorsofthe1990Crime  ControlActinterpretedtheexistingversionof3621(b)asdenying 8 BOPtheabilitytoassignprisonerstoCCCs,exceptduringthefinal 4 portionoftheirsentence.   ` Section1404wasstrickenfromH.R.5269onthefloorof  theHouseofRepresentativesanddidnotbecomelaw.Representative ; McCollum,thesponsoroftheamendmentstrikingthesection, 7 explainedthatheopposed1404because  " 0 ` thelanguageofthebillasitisnowout !! herebeforeus...giv[es]awholelot h"" moreauthoritytotheBureauofPrisons >## thanwereallyoughtto....The $d$ languageinthebill,withoutbeing $: % amended,wouldhaveeffectivelyallowed %!& the...BureauofPrisonstorelease &!' anyprisonerforanylengthoftime... l'"( sotheywouldnothavehadtoserveaday B(#) inprison.)h$*` `    A*%+ %" 136Cong.Rec.2758788(1990).The1990law,asenacted,leftBOP's   authoritytoassignandtransferprisonersunchanged.Presumablyfor \ atleastsomemembersofthe101stCongress,thismeantthatBOPcould X notassignortransferprisonerstoCCCs,exceptattheendoftheir   terms. `   ` Thissubsequentlegislativehistoryis,tosaytheleast, _   troublingandhardtoignore.Ontheotherhand,thereisreasonto  [  heedtheSupremeCourt'sfrequentadmonitionthatusingsubsequent   legislativehistorytointerpretastatuteisahazardousendeavor. c  See,e.g.,Doev.Chao󀄄U.S.,124S.Ct.1204,1212(2004); _ Jonesv.UnitedStates,526U.S.227,238(1999);UnitedStatesv.   Texas,507U.S.529,535n.4(1993);PensionBenefitGuarantyCorp. s v.LTVCorp.,496U.S.633,650(1990);butseeSullivanv. o Finklestein,496U.S.617,62829n.8(1990);W.Eskridge&P.  Frickey,LawasEquilibrium,108Harv.L.Rev.26,65(1994)(stating w thattheSupremeCourt'sstateddoctrineofdecliningtorelyon #s subsequentlegislativehistory"cannotbetakenatfacevalue").Were   3621(b)'stextambiguousandthecontemporaneouslegislativehistory {!" of3621(b)'senactmentunilluminating,thelegislativehistoryof '#w$ the1990CrimeControlActmightwellhavepersuadedmetoconclude $# & thatBOP'sinterpretationisentitledtodeference.However,here, &!( wherethetraditionallypreferredmethodsofinterpretingastatute +({#*  throughitsplainlanguageandthecontemporaneouslegislativehistory )'%, supportthecourt'sconclusion,itisappropriatetolookpastthis  inconsistentsubsequenthistory. \   ` Ultimately,Iamconvincedthattheplainmeaningofthe [ statutecanbeascertainedbyapplyingthe"fundamentalprincipleof  W statutoryconstruction...thatthemeaningofaword(orphrase)   cannotbedeterminedinisolation,butmustbedrawnfromthecontext _   inwhichitisused."SeeKoray,515U.S.at56(quotingDealv.  [  UnitedStates,508U.S.129,132(1993)).Astheleadopinion   explains,"theplaceof...imprisonment"isadefinedphrasewhen c  3621(b)isreadasawhole.Seeanteat17.Thenextsentenceof _ thestatutestatesthat"theplaceof...imprisonment"canbe"any   penalorcorrectionalfacility."Id.Thisthenisthedefinitionof g "theplaceof...imprisonment."Thus,whether"theplaceof.. c .imprisonment"includesplacementinaCCChingesonwhetheraCCC  isa"penalorcorrectionalfacility."Id.at18. k  ` ThegovernmentdoesnotdisputethataCCCissucha j facility.SeeBOPProgramStatementNo.7310.02(1993)(statingthat  f  CCCsmeet3621(b)'sdefinitionofa"penalorcorrectional !" facility");OfficeoftheLegalCounsel,UnitedStatesDepartmentof n#$ Justice,BureauofPrisonsPracticeofPlacinginCommunity %j & ConfinementCertainOffendersWhoHaveReceivedSentencesof &"( Imprisonment(Dec.13,2002)(assuming,arguendo,thatCCCisapenal r(#* orcorrectionalfacility,butnotingthatapriorOfficeoftheLegal *n%, CounselopinionhadnotaddressedwhetheraCCCisa"placeof +'. imprisonment").BecauseBOPmayassignaprisonerto"anypenalor  correctional"facility,thetext,readasawhole,supportsthe \ court'sinterpretation. X  ` Thisconclusionisbuoyedby3621(b)'scontemporaneous  W legislativehistory.Thereisevidencethat3621(b)wasnot   intendedtomakesubstantivechangesinBOP'spreexistingauthority, _   includingitsauthoritytoassignortransferprisonerstoCCCs.See  [  supraat3031;seealsoBarden,921F.2dat481.Thishistory   comportswiththeplainmeaningofthestatuteasoutlinedinthelead c  opinion.Althoughtheapparentchangeinthecongressionalviewof _ thescopeofBOP'sauthoritybetween1984and1990remains   unexplained,becausethecontemporaneouslegislativehistoryis g compellingandthathistorysupportsthemostplausiblereadingofthe c text,itoughttogovernovercontrarysubsequenthistory.Thus,  whilethe1990legislativehistorydemonstratestheclosequestion k presented,itdoesnotprovidesufficientreasontocastdoubtonthe g leadopinion'sconclusion.   Ѐ ` ButjustbecausetheBOPmayassignprisonerstoCCCsdoes !" notmeanthatitmustdoso.Asourholdingstates,BOPisauthorized n#$ totransferprisonerstoCCCsatanytimeduringtheirprisonterms. %j & Anteat2425.Consistentwiththequestionpresentedbythisappeal, &"( theleadopiniondoesnotaddresswhether3621(b)placesany r(#* constraintsonthemannerinwhichBOPmaychoosetoexerciseits *n%, discretiontomakeCCCplacements. +'.  ` Thislimitedholdingisalsoconsistentwiththetextof  3621(b).BOPmaydesignate"anypenalorcorrectionalfacility."18 \ U.S.C.3621(b).Inmakingassignmentsandtransfers,Congress X suggestedthatBOPconsiderseveralfactorsincludingtheresources   ofthefacility,thenatureandcircumstancesoftheoffense,the `  historyandcharacteristicsoftheprisoner,anyrecommendationsby  \  thesentencingcourt,andpertinentpolicystatementsfromthe   SentencingCommission.Id.Thesefactorsarenonexclusiveanddo d  notbindorlimitBOP'sexerciseofitsdiscretion.SeeThyev. `  UnitedStates,109F.3d127,130(2dCir.1997)("Decisionstoplace   aconvicteddefendantwithinaparticulartreatmentprogramora h particularfacilityaredecisionswithinthesolediscretionofthe d BureauofPrisons.");Falconv.Knowles,807F.Supp.1531,1533(S.D.  Fla.1992)("[A]nyapproachthatputsthejudicialbranchincharge l ofdesignatingtheplaceofconfinementforafederalprisonerno h matterhowwelljustifiedonutilitariangroundscollideswith..  .[BOP's]unfetteredauthoritytodecidewheretohousefederal p  prisoners;);seealsoCohenv.UnitedStates,151F.3d1338,134344 !l" (11thCir.1998)(discussingBOP'swidediscretiontoassignprisoners "$ toanycorrectionalfacility,despitestatutoryfactors);Yiv. t$& FederalBureauofPrisons,No.03CV1493,2003WL21321411at*2  &p!( (E.D.Pa.2003)(similar).TheSenatereportaccompanyingthe '#* SentencingReformActconfirmsthewidescopeofBOP'sdiscretion: x)$, "TheCommittee,bylistingfactorsfor[BOP]toconsiderin $+t&. determiningtheappropriatenessorsuitabilityofanyavailable  facility,doesnotintendtorestrictorlimit[BOP]ontheexercise \ ofitsexistingdiscretion...."1984U.S.C.C.A.N.3325.u #  13      ׀Thus, X nothingin3621(b)requiresBOPtogiveanyparticularlevelof   considerationtoanassignmentortransferrequest. `   ` Evenifthestatutorycriteriaformakingassignmentsand _   transferscouldbereadtoguaranteesomesortofindividualized  [  treatment,itisapparenttomethatBOPwouldstillhavethe   authoritytomakeacategoricalruleexcludingsomeorallCCC c  placements,exceptasrequiredforendofsentenceplacementsgoverned _ by3624(c).w #  14      ׀TheSupremeCourtrecentlyaffirmedBOP'scategorical   rulemakingauthorityinacaseconcerningthepermissibilityof g anotherBOPregulation.Lopezv.Davis,531U.S.230,24344(2001). c "Evenifastatutoryschemerequiresindividualizeddeterminations.  ..thedecisionmakerhastheauthoritytorelyonrulemakingto k resolvecertainissuesofgeneralapplicabilityunlessCongress g clearlyexpressesanintenttowithholdthatauthority."Id.(quoting  Am.Hosp.Assn.v.NLRB,499U.S.606,612(1991)).BOP"isnot \ requiredcontinuallytorevisit'issuesthatmaybeestablishedfairly X andefficientlyinasinglerulemakingproceeding.'"Id.(quoting   Hecklerv.Campbell,461U.S.458,467(1983)).