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Kogan v. Lindsay

May 31, 2006


The opinion of the court was delivered by: Judge Caldwell


I. Introduction

Michael Kogan, an inmate at the Canaan Federal Prison Camp ("FPC-Canaan") filed a Petition for Writ of Habeas Corpus pursuant to 28 U.S.C. § 2241 challenging the Bureau of Prison's ("BOP") failure to presently consider him for placement in a Community Corrections Center ("CCC"). Kogan argues that the BOP has the discretion to transfer him to a CCC at anytime during his incarceration and that the BOP's failure to exercise its discretion to do so prior to June 30, 2009, violates 18 U.S.C. § 3621(b)*fn1 and 18 U.S.C. § 3624(c).*fn2 (Doc. 1, Petition). In support of his argument, Kogan cites to Wooodall v. Federal Bureau of Prisons, 432 F.3d 235 (3d Cir. 2005). Petitioner seeks the Court to "order Respondent to allow [him] to serve greater portion of his federal sentence in community confinement than currently calculated 6 months." (Doc. 1, Petition).

For the following reasons, the Petition will be denied.

II. Background

On January 20, 2004, Petitioner Michael Kogan, was sentenced in the United States District Court for the Eastern District of Pennsylvania to 87 months imprisonment for mail and wire fraud. His projected release date is December 31, 2009, and his "half-way house" release date is June 30, 2009, providing him approximately a six (6) month placement in a CCC. (Doc. 1, Petition). Kogan seeks immediate consideration for placement in a CCC which, according to him, would suggest greater than a six month period of half way house placement is warranted. Kogan has not exhausted his administrative remedies as to matters raised in the Petition.

Respondent filed a Response to the Petition which includes the Declarations of Julie Nicklin, Executive Assistant at FPC-Canaan, and K. Michael Sullivan, BOP Attorney at FCIAllenwood, in addition to various BOP policies. (Doc. 5, Response to the Petition for Writ of Habeas Corpus). Respondent asserts Kogan's petition should be dismissed for his failure to exhaust his Administrative Remedies and because he does not have a right to serve the remainder of his sentence in a CCC as his place of confinement is within the sole discretion of the BOP. According to Ms. Nicklin, Kogan does have a projected release date of December 31, 2009, via Good Conduct Time release, and he has a Pre-Release Preparation Date of June 30, 2009. (Doc. 5, Exhibits in Support of Response to the Petition for Writ of Habeas Corpus, Exhibit 1, Declaration of Julie A. Nicklin). A decision as to CCC placement normally occurs eleven to thirteen months before an inmate's projected release date and Kogan's CCC placement review will happen in accordance with the policy. (Doc. 5, Ex. 1, Nicklin Decl. at ¶¶ 6 - 10).

In his Traverse, Kogan contends that Respondent misunderstands the focal point of his claim. He asserts that "Respondent is speaking about Petitioner's pre-release plan, whereas Petition's original request is to serve a portion of his federal imprisonment time in a CCC, which is permissible and possible as based on the Woodall decision." (Doc. 7, Petitioner's Reply to Respondent's Response to the Petition for Writ of Habeas Corpus). While he concedes "that the BOP has full placement authority granted by 18 U.S.C. § 3621(b)" he states that "Petitioner and Respondent, however, clearly disagree on the issue of when such consideration should take place." (Id.)(emphasis in original). Kogan seeks the Court to "order the BOP to perform a timely review of this Petitioner's file in order to determine how each of the factors outlined in Woodall pertain to him personally." (Id.)

III. Discussion

A. Exhaustion

Before a prisoner can bring a habeas petition under 28 U.S.C. § 2241, administrative remedies must be exhausted. See Moscato v. Federal Bureau of Prisons, 98 F.3d 757, 760 (3d Cir. 1996). Exhaustion is required "for three reasons: (1) allowing the appropriate agency to develop a factual record and apply its expertise facilitates judicial review; (2) permitting agencies to grant the relief requested conserves judicial resources; and (3) providing agencies the opportunity to correct their own errors fosters administrative autonomy." (Id. at 761-62). In order for a federal prisoner to exhaust his administrative remedies, he must comply with 28 C.F.R. § 542. See 28 C.F.R. § 542.10, et seq. Alternatively, exhaustion of administrative remedies is not required where the issue presented involves only statutory construction, because there is no need for an administrative agency to develop a factual record or to apply its expertise with respect to the circumstances presented. See Bradshaw v. Carlson, 682 F.2d 1050, 1052 (3d Cir.1981)(citing U.S. ex re. Marrero v. Warden, Lewisburg Penitentiary, 483 F.2d 656, 659 (3d Cir.1973), rev'd on other grounds, 417 U.S. 653 (1974)).

Kogan did not exhaust his administrative remedies regarding the issues raised in his petition. Relying on a number of Middle District cases that have found that requiring inmates to challenge the BOP's 2005 policy regarding placement in a CCC through the administrative process would be futile, Kogan argues the same. See, e.g., Fagiolo v. Smith, 326 F.Supp.2d 589, 590 (M.D.Pa. 2004)("exhaustion would be futile because the BOP has adopted a clear and inflexible policy regarding its interpretation of 18 U.S.C. § 3624(c)").

Respondents argue that Kogan is challenging the application of the BOP regulations to him and not their validity, and therefore Kogan's failure to exhaust should not be excused. See Woodall, 432 F.2d 239, fn.2 ("The District Court excused Woodall's failure to exhaust his administrative remedies. It determined that exhaustion would be futile, given that Woodall is not challenging the application of the BOP regulations, but their validity. We agree with the District Court that the purposes of exhaustion would not be served here by requiring Woodall to exhaust his administrative remedies ..."). We disagree based on the Respondent's argument that "the BOP would not consider Kogan for transfer to a CCC at this time as it would be premature." (See Doc. 5, Response to the Petition for ...

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