International Megan’s Law (H.R. 515): Necessary? Constitutional?
Virtually unnoticed, on February 8, President Obama signed a new bill (H.R. 515), International Megan’s Law, requiring that 1) the U.S. Immigration and Customs Enforcement Agency notify foreign officials when a convicted child sex offender is traveling to their country; and 2) the State Department put a “unique identifier” on the passports of persons who have been convicted of a sex crime involving a child (even if they were children at the time themselves and no matter when the conviction arose) who have been listed on a public sex offender registry. A lawsuit challenging the constitutionality of this law has been filed by California Reform Sex Offender Laws (CA RSOL). The plaintiffs include CEOs of major international companies who travel extensively – and innocently – for business.
The bill was signed eight days after it left Congress and four days after it was received by the White House. Supporters say that the law will help prevent sex trafficking by making it more difficult for sex offenders to “[plan] their trips around locations where the most vulnerable children can be found,” in the words of Congresswoman Ann Wagner, who co-sponsored the bill. Critics assert that there has been no connection established between people on sex registries and international sex trafficking; that the branding passports will do nothing to protect the United States from its own sex offenders who, indeed, will be limited in traveling, even for innocuous purposes; that such limitations are unconstitutional; and that the “unique identifier” endangers the safety of such tourists and anyone flying with them. Moreover, a large percentage of people on the registry for child sex offenses were themselves minors when they were convicted, usually of engaging in sexual conduct as with a minor incapable of consent only because of age. Significantly, many Americans use their passports not for travel but simply for identification purposes – and those people will be unfairly subjected to all of the negative consequences of such identification.
A personal observation: Is there no limit to the US urge to stigmatize and punish the other? Is the urge to punish and stigmatize really justified by the desire to help prevent sex crimes in other countries? Shouldn’t that be done by the legislatures of other countries, who might want to restrict the entry of various people and are fully capable of doing so? Reciprocal international efforts to limit sex trafficking are legitimate, but this Act is overbroad, unhealthy, and probably unconstitutional.
Related Readings:
- David Post, The Yellow Star, the Scarlet Letter, and ‘International Megan’s Law’, The Washington Post (Jan. 6, 2016).
- Press Release, Congresswoman Ann Wagner, Wagner Speaks in Support of International Megan’s Law (Feb. 1, 2016).
- Press Release, Florida Action Committee, Lawsuit Filed Against International Megan’s Law (Feb. 9, 2016).
- International Megan’s Law, H.R. 515, 114th Cong. (2016) (summary for H.R. 515).
- Obama Signs Controversial Legislation Designed to Prevent Sex Tourism, NYTLive (Feb. 9, 2016).
- Doe v. Kerry et al., No. 3:16-cv-00654 (N.D. Cal. Feb. 9, 2016) (complaint).
- Lissa Griffin & Kate Blacker, Megan’s Law and Sarah’s Law: A Comparative Study of Sex Offender Community Notification Schemes in the United States and the United Kingdom, 46 Crim. L. Bull. 987 (2010) (SSRN).
The CONTROVERSIAL International Megan’s Law passed by virtue of the equally controversial “suspension of the rules.” IML as written will place a “unique identifier” on the passports of ALL registered citizens and will establish a new bureaucracy for expanded government control.
International Megan’s Law is an attempt at imposing the American way of thinking on the rest of the world, an act of arrogance that will lead to disastrous results if implemented. IML will attempt to force other nations to create a registry and raise the age of consent to conform to the American standards. This is a blatant violation of international law and a show of contempt for the governments of all nations who do not maintain close ties to the US.
Victim industry advocates have tried to justify International Megan’s Law using anecdotal examples, assumptions, unsourced statistics and non sequiturs to attempt to justify this bad piece of legislation. In reality, various government agencies have reported they have found very few examples of actual sex tourism, and even fewer examples of sex tourism from a registered citizen. It is estimated only about 10 convictions a year occur from Americans engaging in sex tourism annually. The GAO, the US Dept. of Justice, ICE, and the now defunct NDIC have all stated they have found few, if any, examples of Americans traveling abroad specifically to engage in sex tourism or sex trafficking. Key researchers studying sex crimes have repeatedly warned their own research or the research of others have been misinterpreted or distorted by those trying to promote human sex trafficking as America’s next social panic.
International Megan’s Law will be a costly and ineffective measure. It will cost millions just to establish a new bureaucratic agency and to revise the passports of registered citizens. It will cost millions more to enforce the various proposed changes to passports proposed by Congress. Passport limits run afoul of international law, particularly the International Covenant on Civil and Political Rights (1966), by interfering with the free movement of citizens. The ICCPR was signed, ratified, and enforced by the US. In addition, 22 U.S. Code § 217a has been narrowly tailored to limit passports only to those registrants convicted in a court of law for sex tourism, thus nullifying the perceived need to pass IML passport provisions. As previously noted, very few cases of sex tourism/ trafficking are confirmed by government agencies, so the cost of investigating and prosecuting a mere handful of cases do not justify the need for a new bureaucracy, especially if the SMART office is passing IML notification provisions without the authorization of Congress.
The proposal to mark the passports of registered citizens is unprecedented in American history and is offensive enough that even mass media have made parallels between International Megan’s Law and Nazi law. In 1938, the Nazi government required all Jews to surrender their passports and have new passports issued with a scarlet “J” stamped on them. If IML passes, registered citizens will be forced to surrender their passports and have new passports issued with a “unique identifier” on them. In addition to the obvious parallel to Nazi law, this practice will obviously lead to travel impediments and denials of entry across the globe for all registrants regardless of offense. This mark of infamy could potentially lead to travel problems domestically as states struggle to fall into compliance with the so-called “REAL ID” system and thus requiring passports to fly within the boundaries of the US. Furthermore, IML could have an effect described as “humiliating” and “devastating” for individuals whose passports may be falsely marked as belonging to a registered citizen and would lead to costly litigation.
While certain provisions of IML imply that these provisions would be limited to “high risk/ interest” registrants, the harsh reality is this law will be applied to every registered citizen regardless of offense, even teens who engaged in consensual relations with other teens. The law is especially difficult for juveniles on the registry, who are assumed to be less likely to reoffend, more amenable to rehabilitation, and far less likely to become a “sex tourist.”
Finally, International Megan’s Law violates a number of constitutional safeguards, including the 1st (freedom of association) and 14th (Due process) Amendments, as well as the Ex Post Facto clause. In addition, protecting the reputation of American travels and their privacy is of great governmental interest, especially given the attitude of much of the world regarding American tourists. Unconsidered in this report was the potential chilling effect IML could have on ALL American tourists as the US gains a reputation for being a country full of “sex traffickers.” International Megan’s Law will ultimately do far more harm than good, not just in regard to registered citizens, but for the reputation of this nation as well.
For the full report and references for my assertions, go to http://www.oncefallen.com/internationalmeganslaw