AB 1803: Criminal procedure: restitution.
- Session Year: 2023-2024
- House: Assembly
- Latest Version Date: 2024-01-08
Current Status:
Failed
(2024-05-16: In committee: Held under submission.)
Introduced
In Committee
First Chamber
In Committee
Second Chamber
Enacted
What does this bill do?
The bill adds felony human trafficking (Penal Code §236.1) to the crimes for which courts can order restitution for noneconomic losses, like psychological harm. That means victims of human trafficking can be ordered to receive payment from defendants for emotional and other non‑financial harms in addition to any economic losses.
The summary is provided by generative AI which can make mistakes. For original language, please view the details in the table below.
The California Constitution entitles the victim of a crime to restitution. Existing law requires the court to order a person who is convicted of a crime to pay restitution to the victim or victims for the full amount of economic loss. Existing law also requires that order to include noneconomic losses, including, but not limited to, psychological harm, for felony violations of specified crimes relating to child sexual abuse.
This bill would expand those provisions to also include noneconomic losses from felony violations of the crime of human trafficking, as specified.
(a)(1)It is the intent of the Legislature that a victim of crime who incurs an economic loss as a result of the commission of a crime shall receive restitution directly from a defendant convicted of that crime.
(2)Upon a person being convicted of a crime in the State of California, the court shall order the defendant to pay a fine in the form of a penalty assessment in accordance with Section 1464.
(3)The court, in addition to any other penalty provided or imposed under the law, shall order the defendant to pay both of the following:
(A)A restitution fine in accordance with subdivision (b).
(B)Restitution to the victim or victims, if any, in accordance with subdivision (f), which shall be enforceable as if the order were a civil judgment.
(b)In every case where a person is convicted of a crime, the court shall impose a separate and additional restitution fine, unless it finds compelling and extraordinary reasons for not doing so and states those reasons on the record.
(1)The restitution fine shall be set at the discretion of the court and commensurate with the seriousness of the offense. If the person is convicted of a felony, the fine shall not be less than three hundred dollars ($300) and not more than ten thousand dollars ($10,000). If the person is convicted of a misdemeanor, the fine shall not be less than one hundred fifty dollars ($150) and not more than one thousand dollars ($1,000).
(2)In setting a felony restitution fine, the court may determine the amount of the fine as the product of the minimum fine pursuant to paragraph (1) multiplied by the number of years of imprisonment the defendant is ordered to serve, multiplied by the number of felony counts of which the defendant is convicted.
(c)The court shall impose the restitution fine unless it finds compelling and extraordinary reasons for not doing so and states those reasons on the record. A defendants inability to pay shall not be considered a compelling and extraordinary reason not to impose a restitution fine. Inability to pay may be considered only in increasing the amount of the restitution fine in excess of the minimum fine pursuant to paragraph (1) of subdivision (b). The court may specify that funds confiscated at the time of the defendants arrest, except for funds confiscated pursuant to Chapter 8 (commencing with Section 11469) of Division 10 of the Health and Safety Code, be applied to the restitution fine if the funds are not exempt for spousal or child support or subject to any other legal exemption.
(d)In setting the amount of the fine pursuant to subdivision (b) in excess of the minimum fine pursuant to paragraph (1) of subdivision (b), the court shall consider any relevant factors, including, but not limited to, the defendants inability to pay, the seriousness and gravity of the offense and the circumstances of its commission, any economic gain derived by the defendant as a result of the crime, the extent to which any other person suffered losses as a result of the crime, and the number of victims involved in the crime. Those losses may include pecuniary losses to the victim or the victims dependents as well as intangible losses, such as psychological harm caused by the crime. Consideration of a defendants inability to pay may include the defendants future earning capacity. A defendant shall bear the burden of demonstrating the defendants inability to pay. Express findings by the court as to the factors bearing on the amount of the fine shall not be required. A separate hearing for the fine shall not be required.
(e)The restitution fine shall not be subject to penalty assessments authorized in Section 1464 or Chapter 12 (commencing with Section 76000) of Title 8 of the Government Code, or the state surcharge authorized in Section 1465.7, and shall be deposited in the Restitution Fund in the State Treasury.
(f)Except as provided in subdivisions (p) and (q), in every case in which a victim has suffered economic loss as a result of the defendants conduct, the court shall require that the defendant make restitution to the victim or victims in an amount established by court order, based on the amount of loss claimed by the victim or victims or any other showing to the court. If the amount of loss cannot be ascertained at the time of sentencing, the restitution order shall include a provision that the amount shall be determined at the direction of the court. The court shall order full restitution. The court may specify that funds confiscated at the time of the defendants arrest, except for funds confiscated pursuant to Chapter 8 (commencing with Section 11469) of Division 10 of the Health and Safety Code, be applied to the restitution order if the funds are not exempt for spousal or child support or subject to any other legal exemption.
(1)The defendant has the right to a hearing before a judge to dispute the determination of the amount of restitution. The court may modify the amount, on its own motion or on the motion of the district attorney, the victim or victims, or the defendant. If a motion is made for modification of a restitution order, the victim shall be notified of that motion at least 10 days prior to the proceeding held to decide the motion. A victim at a restitution hearing or modification hearing described in this paragraph may testify by live, two-way audio and video transmission, if testimony by live, two-way audio and video transmission is available at the court.
(2)Determination of the amount of restitution ordered pursuant to this subdivision shall not be affected by the indemnification or subrogation rights of a third party. Restitution ordered pursuant to this subdivision shall be ordered to be deposited in the Restitution Fund to the extent that the victim, as defined in subdivision (k), has received assistance from the California Victim Compensation Board pursuant to Chapter 5 (commencing with Section 13950) of Part 4 of Division 3 of Title 2 of the Government Code.
(3)To the extent possible, the restitution order shall be prepared by the sentencing court, shall identify each victim and each loss to which it pertains, and shall be of a dollar amount that is sufficient to fully reimburse the victim or victims for every determined economic loss incurred as the result of the defendants criminal conduct, including, but not limited to, all of the following:
(A)Full or partial payment for the value of stolen or damaged property. The value of stolen or damaged property shall be the replacement cost of like property, or the actual cost of repairing the property when repair is possible.
(B)Medical expenses.
(C)Mental health counseling expenses.
(D)Wages or profits lost due to injury incurred by the victim, and if the victim is a minor, wages or profits lost by the minors parent, parents, guardian, or guardians, while caring for the injured minor. Lost wages shall include commission income as well as base wages. Commission income shall be established by evidence of commission income during the 12-month period prior to the date of the crime for which restitution is being ordered, unless good cause for a shorter time period is shown.
(E)Wages or profits lost by the victim, and if the victim is a minor, wages or profits lost by the minors parent, parents, guardian, or guardians, due to time spent as a witness or in assisting the police or prosecution. Lost wages shall include commission income as well as base wages. Commission income shall be established by evidence of commission income during the 12-month period prior to the date of the crime for which restitution is being ordered, unless good cause for a shorter time period is shown.
(F)Noneconomic losses, including, but not limited to, psychological harm, for felony violations of Section 288, 288.5, or 288.7. all of the following:
(i)Lewd acts on a child, in violation of Section 288, 288.5, or 288.7.
(ii)Human trafficking, in violation of Section 236.1.
(G)Interest, at the rate of 10 percent per annum, that accrues as of the date of sentencing or loss, as determined by the court.
(H)Actual and reasonable attorneys fees and other costs of collection accrued by a private entity on behalf of the victim.
(I)Expenses incurred by an adult victim in relocating away from the defendant, including, but not limited to, deposits for utilities and telephone service, deposits for rental housing, temporary lodging and food expenses, clothing, and personal items. Expenses incurred pursuant to this section shall be verified by law enforcement to be necessary for the personal safety of the victim or by a mental health treatment provider to be necessary for the emotional well-being of the victim.
(J)Expenses to install or increase residential security incurred related to a violation of Section 273.5, or a violent felony as defined in subdivision (c) of Section 667.5, including, but not limited to, a home security device or system, or replacing or increasing the number of locks.
(K)Expenses to retrofit a residence or vehicle, or both, to make the residence accessible to or the vehicle operational by the victim, if the victim is permanently disabled, whether the disability is partial or total, as a direct result of the crime.
(L)Expenses for a period of time reasonably necessary to make the victim whole, for the costs to monitor the credit report of, and for the costs to repair the credit of, a victim of identity theft, as defined in Section 530.5.
(4)(A)If, as a result of the defendants conduct, the Restitution Fund has provided assistance to or on behalf of a victim or derivative victim pursuant to Chapter 5 (commencing with Section 13950) of Part 4 of Division 3 of Title 2 of the Government Code, the amount of assistance provided shall be presumed to be a direct result of the defendants criminal conduct and shall be included in the amount of the restitution ordered.
(B)The amount of assistance provided by the Restitution Fund shall be established by copies of bills submitted to the California Victim Compensation Board reflecting the amount paid by the board and whether the services for which payment was made were for medical or dental expenses, funeral or burial expenses, mental health counseling, wage or support losses, or rehabilitation. Certified copies of these bills provided by the board and redacted to protect the privacy and safety of the victim or any legal privilege, together with a statement made under penalty of perjury by the custodian of records that those bills were submitted to and were paid by the board, shall be sufficient to meet this requirement.
(C)If the defendant offers evidence to rebut the presumption established by this paragraph, the court may release additional information contained in the records of the board to the defendant only after reviewing that information in camera and finding that the information is necessary for the defendant to dispute the amount of the restitution order.
(5)Except as provided in paragraph (6), in any case in which an order may be entered pursuant to this subdivision, the defendant shall prepare and file a disclosure identifying all assets, income, and liabilities in which the defendant held or controlled a present or future interest as of the date of the defendants arrest for the crime for which restitution may be ordered. The financial disclosure statements shall be made available to the victim and the board pursuant to Section 1214. The disclosure shall be signed by the defendant upon a form approved or adopted by the Judicial Council for the purpose of facilitating the disclosure. A defendant who willfully states as true a material matter that the defendant knows to be false on the disclosure required by this subdivision is guilty of a misdemeanor, unless this conduct is punishable as perjury or another provision of law provides for a greater penalty.
(6)A defendant who fails to file the financial disclosure required in paragraph (5), but who has filed a financial affidavit or financial information pursuant to subdivision (c) of Section 987, shall be deemed to have waived the confidentiality of that affidavit or financial information as to a victim in whose favor the order of restitution is entered pursuant to subdivision (f). The affidavit or information shall serve in lieu of the financial disclosure required in paragraph (5), and paragraphs (7) to (10), inclusive, shall not apply.
(7)Except as provided in paragraph (6), the defendant shall file the disclosure with the clerk of the court no later than the date set for the defendants sentencing, unless otherwise directed by the court. The disclosure may be inspected or copied as provided by subdivision (b), (c), or (d) of Section 1203.05.
(8)In its discretion, the court may relieve the defendant of the duty under paragraph (7) of filing with the clerk by requiring that the defendants disclosure be submitted as an attachment to, and be available to, those authorized to receive the following:
(A)A report submitted pursuant to subparagraph (D) of paragraph (2) of subdivision (b) of Section 1203 or subdivision (g) of Section 1203.
(B)A stipulation submitted pursuant to paragraph (4) of subdivision (b) of Section 1203.
(C)A report by the probation officer, or information submitted by the defendant applying for a conditional sentence pursuant to subdivision (d) of Section 1203.
(9)The court may consider a defendants unreasonable failure to make a complete disclosure pursuant to paragraph (5) as any of the following:
(A)A circumstance in aggravation of the crime in imposing a term under subdivision (b) of Section 1170.
(B)A factor indicating that the interests of justice would not be served by admitting the defendant to probation under Section 1203.
(C)A factor indicating that the interests of justice would not be served by conditionally sentencing the defendant under Section 1203.
(D)A factor indicating that the interests of justice would not be served by imposing less than the maximum fine and sentence fixed by law for the case.
(10)A defendants failure or refusal to make the required disclosure pursuant to paragraph (5) shall not delay entry of an order of restitution or pronouncement of sentence. In appropriate cases, the court may do any of the following:
(A)Require the defendant to be examined by the district attorney pursuant to subdivision (h).
(B)If sentencing the defendant under Section 1170, provide that the victim shall receive a copy of the portion of the probation report filed pursuant to Section 1203.10 concerning the defendants employment, occupation, finances, and liabilities.
(C)If sentencing the defendant under Section 1203, set a date and place for submission of the disclosure required by paragraph (5) as a condition of probation or suspended sentence.
(11)If a defendant has any remaining unpaid balance on a restitution order or fine 120 days prior to the defendants scheduled release from probation or 120 days prior to the defendants completion of a conditional sentence, the defendant shall prepare and file a new and updated financial disclosure identifying all assets, income, and liabilities in which the defendant holds or controls or has held or controlled a present or future interest during the defendants period of probation or conditional sentence. The financial disclosure shall be made available to the victim and the board pursuant to Section 1214. The disclosure shall be signed and prepared by the defendant on the same form as described in paragraph (5). A defendant who willfully states as true a material matter that the defendant knows to be false on the disclosure required by this subdivision is guilty of a misdemeanor, unless this conduct is punishable as perjury or another provision of law provides for a greater penalty. The financial disclosure required by this paragraph shall be filed with the clerk of the court no later than 90 days prior to the defendants scheduled release from probation or completion of the defendants conditional sentence.
(12)In cases where an employer is convicted of a crime against an employee, a payment to the employee or the employees dependent that is made by the employers workers compensation insurance carrier shall not be used to offset the amount of the restitution order unless the court finds that the defendant substantially met the obligation to pay premiums for that insurance coverage.
(g)A defendants inability to pay shall not be a consideration in determining the amount of a restitution order.
(h)The district attorney may request an order of examination pursuant to the procedures specified in Article 2 (commencing with Section 708.110) of Chapter 6 of Division 2 of Title 9 of Part 2 of the Code of Civil Procedure, in order to determine the defendants financial assets for purposes of collecting on the restitution order.
(i)A restitution order imposed pursuant to subdivision (f) shall be enforceable as if the order were a civil judgment.
(j)The making of a restitution order pursuant to subdivision (f) shall not affect the right of a victim to recovery from the Restitution Fund as otherwise provided by law, except to the extent that restitution is actually collected pursuant to the order. Restitution collected pursuant to this subdivision shall be credited to any other judgments for the same losses obtained against the defendant arising out of the crime for which the defendant was convicted.
(k)For purposes of this section, victim shall include all of the following:
(1)The immediate surviving family of the actual victim.
(2)A corporation, business trust, estate, trust, partnership, association, joint venture, government, governmental subdivision, agency, or instrumentality, or any other legal or commercial entity when that entity is a direct victim of a crime.
(3)A person who has sustained economic loss as the result of a crime and who satisfies any of the following conditions:
(A)At the time of the crime was the parent, grandparent, sibling, spouse, child, or grandchild of the victim.
(B)At the time of the crime was living in the household of the victim.
(C)At the time of the crime was a person who had previously lived in the household of the victim for a period of not less than two years in a relationship substantially similar to a relationship listed in subparagraph (A).
(D)Is another family member of the victim, including, but not limited to, the victims fiance or fiancee, fiance, and who witnessed the crime.
(E)Is the primary caretaker of a minor victim.
(4)A person who is eligible to receive assistance from the Restitution Fund pursuant to Chapter 5 (commencing with Section 13950) of Part 4 of Division 3 of Title 2 of the Government Code.
(5)A governmental entity that is responsible for repairing, replacing, or restoring public or privately owned property that has been defaced with graffiti or other inscribed material, as defined in subdivision (e) of Section 594, and that has sustained an economic loss as the result of a violation of Section 594, 594.3, 594.4, 640.5, 640.6, or 640.7.
(l)In every case in which the defendant is granted probation, the court shall make the payment of restitution fines and orders imposed pursuant to this section a condition of probation. Any portion of a restitution order that remains unsatisfied after a defendant is no longer on probation shall continue to be enforceable by a victim pursuant to Section 1214 until the obligation is satisfied.
(m)If the court finds and states on the record compelling and extraordinary reasons why a restitution fine should not be required, the court shall order, as a condition of probation, that the defendant perform specified community service, unless it finds and states on the record compelling and extraordinary reasons not to require community service in addition to the finding that a restitution fine should not be required. Upon revocation of probation, the court shall impose the restitution fine pursuant to this section.
(n)The provisions of Section 13963 of the Government Code shall apply to restitution imposed pursuant to this section.
(o)The court clerk shall notify the California Victim Compensation and Government Claims Board within 90 days of an order of restitution being imposed if the defendant is ordered to pay restitution to the board due to the victim receiving compensation from the Restitution Fund. Notification shall be accomplished by mailing a copy of the court order to the board, which may be done periodically by bulk mail or email.
(p)Upon conviction for a violation of Section 236.1, the court shall, in addition to any other penalty or restitution, order the defendant to pay restitution to the victim in a case in which a victim has suffered economic loss as a result of the defendants conduct. The court shall require that the defendant make restitution to the victim or victims in an amount established by court order, based on the amount of loss claimed by the victim or victims or another showing to the court. In determining restitution pursuant to this section, the court shall base its order upon the greater of the following: the gross value of the victims labor or services based upon the comparable value of similar services in the labor market in which the offense occurred, or the value of the victims labor as guaranteed under California law, or the actual income derived by the defendant from the victims labor or services or any other appropriate means to provide reparations to the victim.
(q)(1)In addition to any other penalty or fine, the court shall order a person who has been convicted of a violation of Section 350, 653h, 653s, 653u, 653w, or 653aa that involves a recording or audiovisual work to make restitution to an owner or lawful producer, or trade association acting on behalf of the owner or lawful producer, of a phonograph record, disc, wire, tape, film, or other device or article from which sounds or visual images are derived that suffered economic loss resulting from the violation. The order of restitution shall be based on the aggregate wholesale value of lawfully manufactured and authorized devices or articles from which sounds or visual images are devised corresponding to the number of nonconforming devices or articles involved in the offense, unless a higher value can be proved in the case of (A) an unreleased audio work, or (B) an audiovisual work that, at the time of unauthorized distribution, has not been made available in copies for sale to the general public in the United States on a digital versatile disc. For purposes of this subdivision, possession of nonconforming devices or articles intended for sale constitutes actual economic loss to an owner or lawful producer in the form of displaced legitimate wholesale purchases. The order of restitution shall also include reasonable costs incurred as a result of an investigation of the violation undertaken by the owner, lawful producer, or trade association acting on behalf of the owner or lawful producer. Aggregate wholesale value means the average wholesale value of lawfully manufactured and authorized sound or audiovisual recordings. Proof of the specific wholesale value of each nonconforming device or article is not required.
(2)As used in this subdivision, audiovisual work and recording shall have the same meaning as in Section 653w.
(r)This section shall become operative on January 1, 2022. REVISIONS: HeadingLines 2, 3, and 4.|
Date
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Status
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|---|---|
| May 16, 2024 | Coauthors revised. |
| May 16, 2024 | In committee: Held under submission. |
| Mar 20, 2024 | In committee: Set, first hearing. Referred to APPR. suspense file. |
| Mar 4, 2024 | (Ayes 51. Noes 13. Page 4259.) |
| Mar 4, 2024 | Re-referred to Com. on APPR. pursuant to Assembly Rule 97. |
| Feb 28, 2024 | Read second time. Ordered to third reading. |
| Feb 27, 2024 | From committee: Do pass. (Ayes 7. Noes 0.) (February 27). |
| Jan 22, 2024 | Referred to Com. on PUB. S. |
| Jan 9, 2024 | From printer. May be heard in committee February 8. |
| Jan 8, 2024 | Read first time. To print. |
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Date
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Description
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Location
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Votes
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|---|---|---|---|---|
| Feb 27, 2024 | Do pass. | Assembly Standing Committee on Public Safety |
Passed |
This list shows positions taken on this bill by organizations on the date displayed, which is linked to the original source.
Positions by individuals are not included.
|
Organization
|
Position
|
Date
|
|---|---|---|
| Arcadia Police Officers' Association | ** Support | |
| Breaking the Chains | * Support | Feb 27, 2024 |
| Breaking the Chains | ** Support | |
| Burbank Police Officers' Association | ** Support | |
| California Coalition of School Safety Professionals | ** Support | |
| California Family Council | ** Support | |
| California Narcotic Officers' Association | ** Support | |
| California Public Defenders Association | * Against | Feb 27, 2024 |
| California Reserve Peace Officers Association | ** Support | |
| Central Valley Justice Coalition | ** Support | |
| City Of Clovis | ** Support | |
| City of Clovis Police Department | ** Support | |
| CLAREMONT POLICE OFFICERS ASSOCIATION | ** Support | |
| Corona Police Officers Association | ** Support | |
| Culver City Police Officers' Association | ** Support | |
| Debt Free Justice California Coalition | * For If Amend | Feb 27, 2024 |
| Deputy Sheriffs Association of Monterey County | ** Support | |
| Fresno County Board of Supervisors | * Support | Feb 27, 2024 |
| Fresno County District Attorneys Office | ** Support | |
| Fresno County Sheriff's Office | ** Support | |
| Fresno Police Department | ** Support | |
| Fullerton Police Officers' Association | ** Support | |
| Jerry Dyer, Mayor of City of Fresno | ** Support | |
| Legal Services for Prisoners with Children | ** Against | |
| Los Angeles School Police Management Association | ** Support | |
| los angeles school police officers association | ** Support | |
| Madera County | ** Support | |
| Mariposa County Board of Supervisors | ** Support | |
| Murrieta Police Officers' Association | ** Support | |
| Newport Beach Police Association | ** Support | |
| Novato Police Officers Association | ** Support | |
| Our Duty | * Support | Feb 27, 2024 |
| Palos Verdes Police Officers Association | ** Support | |
| Peace Officers Research Association Of California | ** Support | |
| PLACER COUNTY DEPUTY SHERIFFS ASSOCIATION | ** Support | |
| Pomona Police Officers' Association | ** Support | |
| RIVERSIDE POLICE OFFICERS ASSOCIATION | ** Support | |
| Riverside Sheriff Association | * Support | Feb 27, 2024 |
| San Francisco Public Defender | ** Against | |
| Santa Ana Police Officers Association | ** Support | |
| State Center Community College District | ** Support | |
| Upland Police Officers Association | ** Support | |
| Young Women's Freedom Center | ** Against |
Date of Hearing: March 20, 2024
ASSEMBLY COMMITTEE ON APPROPRIATIONS
Buffy Wicks, Chair
ABPCA Bill Id:AB 1803
Author:(Jim Patterson) – As Introduced Ver:January 8, 2024
Policy Committee: | Public Safety | Vote: | 7 - 0 |
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Urgency: No State Mandated Local Program: No Reimbursable: No
SUMMARY:
This bill authorizes a court to order a defendant convicted of human trafficking to pay victim restitution for noneconomic losses suffered by a victim.
FISCAL EFFECT:
Costs (Trial Court Trust Fund, General Fund) to the courts of an unknown but potentially significant amount. Actual costs will depend on the number of convictions and the amount of court time needed to determine victims’ noneconomic losses, and order and enforce victim restitution. It generally costs approximately $1,000 to operate a courtroom for one hour. Although courts are not funded on the basis of workload, increased pressure on the Trial Court Trust Fund may create a need for increased funding for courts from the General Fund. The Governor’s 2024-25 budget proposes $83.1 million ongoing from the General Fund to backfill declining revenue to the Trial Court Trust Fund.
According to the Legislative Analyst’s Office, the General Fund faces a structural deficit in the tens of billions of dollars over the next several fiscal years.
COMMENTS:
- Purpose. According to the author:
This bill addresses the inadequacies in current restitution procedures by extending its scope to incorporate a more inclusive approach, particularly geared towards the nuanced needs of victims of human trafficking. Recognizing the comprehensive impact of such offenses, the legislation ensures that both economic and noneconomic losses are considered in the determination of restitution amounts.
- Background. Existing law requires a judge to order a criminal defendant to pay victim restitution to compensate a crime victim for economic losses they sustained as a result of the crime. Restitution for economic losses may include costs like medical bills, lost wages, or counseling sessions. In general, a victim may only recover compensation for noneconomic losses – like their pain, suffering, or the impact of psychological harm – by filing a separate lawsuit in civil court. However, the Penal Code allows a criminal court to order payment of victim restitution that includes noneconomic losses if a defendant has been convicted of a felony violation of lewd or lascivious acts performed on minors, continuous sexual abuse of a child, or sexual acts with a child 10 years of age or younger. This bill expands that list and authorizes a court to order a defendant convicted of human trafficking to pay victim restitution that includes noneconomic losses.
Statewide data about restitution orders in human trafficking cases is not readily available. The California Department of Corrections and Rehabilitation (CDCR) tracks the number of people admitted into state prison for human trafficking and the number of convictions for human trafficking represented in its annual admissions. According to CDCR, in 2023, 64 people were admitted into CDCR custody whose principal conviction was for human trafficking. CDCR’s 2023 admissions included people convicted of a total of 598 counts of human trafficking. It is unknown exactly how many defendants and victims this represents. To the extent this bill requires courts to assess, order, and enforce victim restitution for noneconomic loss for potentially hundreds of human trafficking victims annually, the bill may add significant workload to the courts.
Analysis Prepared by: Annika Carlson / APPR. / (916) 319-2081
ASSEMBLY THIRD READING
ATR Bill Id:AB 1803
Author:(Jim Patterson)
As Introduced Ver:January 8, 2024
Majority vote
SUMMARY
Authorizes restitution for non-economic losses in cases involving convictions for human trafficking. Specifically, this bill: Adds the crime of human trafficking to the statute authorizing non-economic restitution.
Major Provisions
COMMENTS
Victim Restitution: The purpose of victim restitution is to reimburse the victim for economic loss caused by the crime. (People v. Giordano (2007) 42 Cal.4th 644, 652.) In 1982, California voters passed Proposition 8, the Victims' Bill of Rights, which added article I, section 28, subdivision (b) to the California Constitution, which gives victims the right to seek and secure restitution from the persons convicted of the crimes causing the loss that the suffer. (People v. Gross (2015) 238 Cal.App.4th 1313, 1317-1318.) "A victim's right to restitution is, therefore, a constitutional one; it cannot be bargained away or limited, nor can the prosecution waive the victim's right to receive restitution." (Ibid.)
With limited exceptions, restitution orders are limited to economic damages. There are exceptions for noneconomic losses, including but not limited to psychological harm, for felony violations of lewd or lascivious acts performed on minors, continuous sexual abuse of a child, and sexual acts with a child 10 years of age or younger. (People v. Fulton (2003) 109 Cal.App.4th 876, 884, fn. 5.) Otherwise, noneconomic losses are recoverable through a civil judgment. (Vigilant Ins. Co. v. Chiu (2009) 175 Cal.App.4th 438, 445.)
This bill amends the restitution provision pertaining to crimes eligible for noneconomic losses to include violations of human trafficking.
According to the Author
"This bill addresses the inadequacies in current restitution procedures by extending its scope to incorporate a more inclusive approach, particularly geared towards the nuanced needs of victims of human trafficking. Recognizing the comprehensive impact of such offenses, the legislation ensures that both economic and noneconomic losses are considered in the determination of restitution amounts. At its core, the bill empowers the judiciary to determine suitable restitution by considering the seriousness of the offense and the specific losses endured by the victim. This refined approach not only strengthens the pursuit of justice but also underscores a commitment to providing tailored support for victims, fostering a more compassionate and equitable restitution process."
Arguments in Support
According to the Fresno County District Attorney, "Presently, California law guarantees victims the right to restitution, with the court mandated to order convicted individuals to pay for the complete economic loss suffered by the victim. While noneconomic losses, such as psychological harm, are considered for felony violations, there exists a pressing need to enhance and clarify procedures for determining restitution amounts, especially for non-economic losses.
"AB 1803 broadens restitution procedures for human trafficking victims, ensuring a more inclusive approach. The legislation recognizes both economic and noneconomic losses, empowering the judiciary to assess suitable restitution by considering the offense's gravity and specific losses endured by the victim. This refined approach strengthens the pursuit of justice and underscores a commitment to providing personalized support for victims, fostering a more compassionate restitution process."
Arguments in Opposition
According to the California Public Defenders Association, "Restitution is an important issue in criminal matters. Crime victims are entitled to be reimbursed for their actual, out-of-pocket economic losses. These losses usually are based upon easily determinable cost figures that accurately establish the loss. After a hearing, the accused is assessed the restitution amount. Often, because the losses are readily ascertainable, defense counsel will stipulate with the prosecutor to the amount, thus saving court and victim/witness time.
"Under current law, a court may order non-economic losses for three specified sex offenses involving children. The term "non-economic losses" is not specifically defined but it usually refers to the damages one often claims in a civil case: pain and suffering as well as psychological harm.
"AB 1803 would expand restitution for non-economic losses by adding the crime of human trafficking. The problem with non-economic losses in a criminal case is that they are standardless – the protections and proof found in civil cases are entirely absent in a criminal case.
"In a civil case, the plaintiff will produce expert testimony, perhaps from mental health professionals, showing the lingering trauma caused by an occurrence. This testimony establishes a basis from which a jury could determine a reasonable amount of non-economic loss.
"In a criminal case there is no such requirement. There is no jury trial on restitution – the judge alone makes that determination. There is no requirement in a criminal case that the prosecution put on any evidence at all to support a demand for non-economic damages. The prosecution is not required to call experts, for example. A judge can simply read a probation report and assess non-economic damages, seemingly at the judge's whim. The judge's determination is subject to "abuse of discretion" review, which is very difficult to overcome….
"Crime victims are not without recourse. They will, of course, continue to receive restitution for actual losses and for non-economic losses for the three specified sex crimes involving children. The civil courts are specifically designed to determine damages in these types of cases and crime victims can avail themselves of that venue."
FISCAL COMMENTS
Unknown. This bill is keyed non-fiscal by the Legislative Counsel.
VOTES
ASM PUBLIC SAFETY: 7-0-1
YES: McCarty, Alanis, Lackey, Stephanie Nguyen, Reyes, Ting, Zbur
ABS, ABST OR NV: Wilson
UPDATED
VERSION: January 8, 2024
CONSULTANT: Sandy Uribe / PUB. S. / (916) 319-3744 FN: 0002642
Date of Hearing:
Chief Counsel: Sandy Uribe
ASSEMBLY COMMITTEE ON PUBLIC SAFETY
Kevin McCarty, Chair
ABPCA Bill Id:AB 1803
Author:(Jim Patterson) – As Introduced Ver:January 8, 2024
SUMMARY:
Authorizes restitution for non-economic losses in cases involving convictions for human trafficking. Specifically, this bill: Adds the crime of human trafficking to the statute authorizing non-economic restitution.
EXISTING LAW:
- Provides that, in order to preserve and protect a victim’s rights to justice and due process, a victim shall be entitled specified rights, including among others, restitution. (Cal. Const., art. I, § 28, subd. (b)(13).)
- States that it is the unequivocal intention of the People of the State of California that all persons who suffer losses as a result of criminal activity shall have the right to seek and secure restitution from the persons convicted of the crimes causing the losses they suffer. (Cal. Const., art. I, § 28, subd. (b)(13)(A).)
- Provides that restitution shall be ordered from the convicted wrongdoer in every case, regardless of the sentence or disposition imposed, in which a crime victim suffers a loss. (Cal. Const., art. I, § 28, subd. (b)(13)(B).)
- Requires the sentencing court to order the defendant to pay victim restitution to fully reimburse the victim for economic losses resulting from the defendant's criminal conduct. (Pen. Code, § 1202.4, subd. (f).)
- States that economic losses include, but are not limited to, the following: full or partial payment for the value of stolen or damaged property; medical expenses; mental health counseling expenses; wages or profits lost due to injury incurred by the victim, and if the victim is a minor, wages or profits lost by the minor's parent, parents, guardian, or guardians, while caring for the injured minor; wages or profits lost by the victim, due to time spent as a witness or in assisting the police or prosecution. (Pen. Code, § 1202.4, subd. (f)(3).)
- Permits courts to order restitution for noneconomic losses, including, but not limited to, psychological harm, for felony violations of lewd and lascivious acts against a child under 14 years of age, continuous sexual abuse of a child, and sexual acts with a child 10 years of age or younger. (Pen. Code § 1202.4, subd. (f)(3)(F).)
- Prohibits consideration of a defendant's inability to pay in determining the amount of a restitution order. (Pen. Code § 1202.4, subd. (g).)
- Authorizes the victim to enforce the restitution order as a civil judgment. (Pen. Code, § 1202.4, subd. (i).)
FISCAL EFFECT:
Unknown
COMMENTS:
- Author's Statement: According to the author, “This bill addresses the inadequacies in current restitution procedures by extending its scope to incorporate a more inclusive approach, particularly geared towards the nuanced needs of victims of human trafficking. Recognizing the comprehensive impact of such offenses, the legislation ensures that both economic and noneconomic losses are considered in the determination of restitution amounts. At its core, the bill empowers the judiciary to determine suitable restitution by considering the seriousness of the offense and the specific losses endured by the victim. This refined approach not only strengthens the pursuit of justice but also underscores a commitment to providing tailored support for victims, fostering a more compassionate and equitable restitution process.”
- Victim Restitution: The purpose of victim restitution is to reimburse the victim for economic loss caused by the crime. (People v. Giordano (2007) 42 Cal.4th 644, 652.) In 1982, California voters passed Proposition 8, the Victims’ Bill of Rights, which added article I, section 28, subdivision (b) to the California Constitution, which gives victims the right to seek and secure restitution from the persons convicted of the crimes causing the loss that the suffer. (People v. Gross (2015) 238 Cal.App.4th 1313, 1317-1318.) “A victim’s right to restitution is, therefore, a constitutional one; it cannot be bargained away or limited, nor can the prosecution waive the victim's right to receive restitution.” (Ibid.)
As directed by the voters, the Legislature enacted Penal Code section 1202.4 to implement the Victims’ Bill of Rights. (Gross, supra, 238 Cal.App.4th at p. 1318; People v. Seymour (2015) 239 Cal.App.4th 1418, 1435.) This statute provides that “in every case in which a victim has suffered economic loss as a result of the defendant’s conduct, the court shall require that the defendant make restitution to the victim or victims in an amount established by court order.” (Pen. Code, § 1202.4, subd. (f).) The statute further provides that a “defendant’s inability to pay shall not be a consideration in determining the amount of a restitution order.” (Pen. Code, § 1202.4, subd. (g).) Rather, victim restitution orders must be of a dollar amount that is sufficient to fully reimburse the victim, which can include an assortment of expenses such as medical expenses, mental health counseling expenses, wages or lost profits, noneconomic losses like psychological harm, actual and reasonable attorney’s fees, and relocation fees. The victim restitution order must also include interest at the rate of 10% per annum (Pen. Code, § 1202.4, subd. (f)(3)(G).)
Payment of victim restitution goes directly to the victim and compensates them for economic losses they have suffered because of the defendant’s crime, i.e., to make the victim reasonably whole. (People v. Guillen (2013) 218 Cal.App.4th 975, 984.) A victim restitution order is an enforceable civil money judgment, and typical post-judgment enforcement tools are available to the victim. (Pen. Code, § 1202.4, subd. (i).) Victims have access to all available resources to enforce the order, including wage garnishment and lien procedures, even if the defendant is no longer in custody or on supervision. (Ibid.)
With limited exceptions, restitution orders are limited to economic damages. There are exceptions for noneconomic losses, including but not limited to psychological harm, for felony violations of lewd or lascivious acts performed on minors, continuous sexual abuse of a child, and sexual acts with a child 10 years of age or younger. (People v. Fulton (2003) 109 Cal.App.4th 876, 884, fn. 5.) Otherwise, noneconomic losses are recoverable through a civil judgment. (Vigilant Ins. Co. v. Chiu (2009) 175 Cal.App.4th 438, 445.)
This bill amends the restitution provision pertaining to crimes eligible for noneconomic losses to include violations of human trafficking.
- Argument in Support: According to the Fresno County District Attorney, “Presently, California law guarantees victims the right to restitution, with the court mandated to order convicted individuals to pay for the complete economic loss suffered by the victim. While noneconomic losses, such as psychological harm, are considered for felony violations, there exists a pressing need to enhance and clarify procedures for determining restitution amounts, especially for non-economic losses.
“AB 1803 broadens restitution procedures for human trafficking victims, ensuring a more inclusive approach. The legislation recognizes both economic and noneconomic losses, empowering the judiciary to assess suitable restitution by considering the offense’s gravity and specific losses endured by the victim. This refined approach strengthens the pursuit of justice and underscores a commitment to providing personalized support for victims, fostering a more compassionate restitution process.” - Argument in Opposition: According to the California Public Defenders Association, “Restitution is an important issue in criminal matters. Crime victims are entitled to be reimbursed for their actual, out-of-pocket economic losses. These losses usually are based upon easily determinable cost figures that accurately establish the loss. After a hearing, the accused is assessed the restitution amount. Often, because the losses are readily ascertainable, defense counsel will stipulate with the prosecutor to the amount, thus saving court and victim/witness time.
“Under current law, a court may order non-economic losses for three specified sex offenses involving children. The term “non-economic losses” is not specifically defined but it usually refers to the damages one often claims in a civil case: pain and suffering as well as psychological harm.
“AB 1803 would expand restitution for non-economic losses by adding the crime of human trafficking. The problem with non-economic losses in a criminal case is that they are standardless – the protections and proof found in civil cases are entirely absent in a criminal case.
“In a civil case, the plaintiff will produce expert testimony, perhaps from mental health professionals, showing the lingering trauma caused by an occurrence. This testimony establishes a basis from which a jury could determine a reasonable amount of non-economic loss.
“In a criminal case there is no such requirement. There is no jury trial on restitution – the judge alone makes that determination. There is no requirement in a criminal case that the prosecution put on any evidence at all to support a demand for non-economic damages. The prosecution is not required to call experts, for example. A judge can simply read a probation report and assess non-economic damages, seemingly at the judge’s whim. The judge’s determination is subject to “abuse of discretion” review, which is very difficult to overcome….
“Crime victims are not without recourse. They will, of course, continue to receive restitution for actual losses and for non-economic losses for the three specified sex crimes involving children. The civil courts are specifically designed to determine damages in these types of cases and crime victims can avail themselves of that venue.”
- Related Legislation: AB 1909 (Quirk-Silva), would make any portion of a restitution order that remains unsatisfied after a defendant has completed diversion enforceable. This bill will be heard in committee today.
- Prior Legislation:
- AB 1186 (Bonta), of the 2023-2024 Legislative Session, would remove the ability of the court to require a minor to pay victim restitution. AB 1186 was ordered to the inactive file on the Senate Floor.
- SB 756 (Stern), Chapter 101, Statutes of 2017, authorizes restitution for non-economic losses in cases where a person is convicted of continuous sexual abuse of a child or sexual acts with a child 10 years of age or younger.
- Proposition 9, of the November 2008 general election, Marsy's Law, significantly expands the rights of crime victims in California by giving them specified constitutional rights, including expanded right to restitution.
- AB 1186 (Bonta), of the 2023-2024 Legislative Session, would remove the ability of the court to require a minor to pay victim restitution. AB 1186 was ordered to the inactive file on the Senate Floor.
REGISTERED SUPPORT / OPPOSITION:
Support
Arcadia Police Officers' Association
Breaking the Chains
Burbank Police Officers' Association
California Coalition of School Safety Professionals
California Family Council
California Narcotic Officers' Association
California Reserve Peace Officers Association
Central Valley Justice Coalition
City of Clovis
City of Clovis Police Department
Claremont Police Officers Association
Corona Police Officers Association
County of Fresno
Culver City Police Officers' Association
Deputy Sheriffs' Association of Monterey County
Fresno County District Attorneys Office
Fresno County Sheriff's Office
Fresno Police Department
Fullerton Police Officers' Association
Jerry Dyer, Mayor of City of Fresno
Los Angeles School Police Management Association
Los Angeles School Police Officers Association
Madera County
Mariposa County Board of Supervisors
Murrieta Police Officers' Association
Newport Beach Police Association
Novato Police Officers Association
Palos Verdes Police Officers Association
Peace Officers Research Association of California (PORAC)
Placer County Deputy Sheriffs' Association
Pomona Police Officers' Association
Riverside Police Officers Association
Riverside Sheriffs' Association
Santa Ana Police Officers Association
State Center Community College District
Upland Police Officers Association
Opposition
California Public Defenders Association
Legal Services for Prisoners With Children
San Francisco Public Defender
Young Women's Freedom Center
Analysis Prepared by:
Sandy Uribe / PUB. S. / (916) 319-3744
Discussed in Hearing
Assembly Standing Committee on Public Safety
Bill Author
Bill Co-Author(s):