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Revised May 14, 2001
IN THE UNITED STATES COURT OF APPEALS
FOR THE FIFTH CIRCUIT

No. 00-10810

RICHARD PAUL HENRIKSON,
Plaintiff-Appellant,
versus
BOB GUZIK,
Defendant-Appellee.

Appeal from the United States District Court
for the Northern District of Texas

April 24, 2001
Before GARWOOD, PARKER, and DENNIS, Circuit Judges.
GARWOOD, Circuit Judge:
Petitioner-appellant Richard Paul Henrikson appeals the district
court's upholding respondent-appellee Bureau of Prisons's interpretation
of 18 U.S.C. § 4042(b), set forth in Program Statement 5110.12. We
reverse.
Facts and Proceedings Below
On October 13, 1977, Henrikson was convicted in Michigan state
court of arson. On October 13, 1995, Henrikson pleaded guilty to
possession of unregistered firearms in violation of 26 U.S.C. § 5861(d).

On January 22, 1996, he was sentenced to seventy months in prison.
Henrikson is currently serving this seventy month term and is eligible
for release on May 8, 2001.
18 U.S.C. § 4042(b) provides that if the prisoner was convicted of
a drug trafficking crime or crime of violence and is to be released on
supervised release, the Bureau "shall" provide written notice of the
release of the prisoner to the chief law enforcement officer of the
jurisdiction in which the prisoner will reside.1 The Bureau has
118 U.S.C. § 4042(b) provides, in its entirety:
"(b) Notice of release of prisoners.
(1) At least 5 days prior to the date on which a
prisoner described in paragraph (3) is to be released on
supervised release, or, in the case of a prisoner on
supervised release, at least 5 days prior to the date on
which the prisoner changes residence to a new jurisdiction,
written notice of the release or change of residence shall
be provided to the chief law enforcement officer of the State
and of the local jurisdiction in which the prisoner will
reside. Notice prior to release shall be provided by the
Director of the Bureau of Prisons. Notice concerning a
change of residence following release shall be provided by
the probation officer responsible for the supervision of the
released prisoner, or in a manner specified by the Director
of the Administrative Office of the United States Courts.
The notice requirements under this subsection do not apply
in relation to a prisoner being protected under chapter 224.
(2) A notice under paragraph (1) shall disclose
(A) the prisoner's name;
(B) the prisoner's criminal history, including a
description of the offense of which the prisoner was
convicted; and
(C) any restrictions on conduct or other
conditions to the release of the prisoner that are imposed
by law, the sentencing court, or the Bureau of Prisons or any
other Federal agency.
(3) A prisoner is described in this paragraph if the
prisoner was convicted of
(A) a drug trafficking crime, as that term is
defined in section 924(c)(2); or
(B) a crime of violence (as defined in section
2

notified Henrikson that it intends to provide notification of his
release pursuant to section 4042(b). The Bureau does not contend that
Henrikson's current conviction, for possessing unregistered firearms,
requires release notification. In Program Statement 5110.12, the Bureau
interprets section 4042(b) as requiring release notification if any
crime in the prisoner's criminal history satisfies the criteria set
forth in section 4042(b)(3).2 The Bureau asserts, and Henrikson does
not dispute, that his 1977 arson conviction constitutes a crime of
violence. Henrikson contends that section 4042(b) only requires release
notification if the offense for which the prisoner is currently
incarcerated meets one of the section 4042(b)(3) criteria, and that,
therefore, the Bureau's release notification policy as set forth in
Program Statement 5110.12 exceeds the Bureau's statutory authority under
924(c)(3))."
2Program Statement 5110.12 provides, in relevant part:
"7. APPLICABILITY. Notification pursuant to this Program
Statement is required on any Federal prisoner committed to
the custody of the Bureau who is:
a. To be released to Supervised Release, probation, or
parole on or after September 13, 1994; and
b. (1) whose current offense of conviction is a `drug
trafficking crime' or a `crime of violence' as defined in
Sections 6.a. or 6.b., or
(2) whose criminal history as determined by staff
in the exercise of their professional judgment includes a
conviction for `drug trafficking' or a `crime of violence'
as defined in Sections 6.a. or 6.b. For prior `drug
trafficking crimes,' staff shall consider only Federal
convictions as a basis for notification. For `crimes of
violence,' staff shall consider both State and Federal
convictions as a basis for notification."
Program Statement 5110.12 was superceded by Program
Statement 5110.15 on August 30, 2000. None of the changes
are relevant to Henrikson's appeal.
3

section 4042(b).3
On July 19, 1999, Henrikson filed a petition to test the legality
of the Bureau's release notification policy.4 On October 5, 1999, the
Bureau filed a motion to dismiss the petition pursuant to FED. R. CIV.
P. 12(b)(2), (5) and (6). On June 19, 2000, the magistrate judge issued
his report, which found that under Chevron U.S.A. Inc. v. Natural
Resources Defense Counsel, Inc., 104 S.Ct. 2778 (1984), and Stinson v.
United States, 113 S.Ct. 1913 (1993), Program Statement 5110.12 must be
given "controlling weight" because it is a permissible construction of
the statute and recommended that the motion to dismiss be granted. On
June 28, 2000, Henrikson timely filed objections thereto. On July 12,
2000, the district court adopted the magistrate's report.
Discussion
I.
Deference to Program Statement 5110.12
Chevron requires that if a statute is silent or ambiguous as to the
particular issue in question, federal courts must defer to an
administrative agency's resolution of that question if such resolution
3Henrikson advances other reasons as to why notification should not
be required in his case. Because these arguments are meritless, we do
not address them.
4This petition purported to be pursuant to 28 U.S.C. § 2241(c)(3).
However, because Henrikson is not challenging the fact or duration of
his confinement, subject matter jurisdiction is not present under §
2241. The magistrate judge recognized that Henrikson had exhausted his
administrative remedies and that where the exhaustion requirement is not
implicated habeas petitions may be treated as requests for declaratory
judgment pursuant to 28 U.S.C. §§ 1331 and 2201. See Royce v. Hahn, 151
F.3d 116, 118 (3rd Cir. 1998). The Bureau has not challenged this
determination of the magistrate judge.
4

is predicated upon a permissible interpretation of the statute the
agency is charged with administering. Chevron, 104 S.Ct. at 2781-82.
As mentioned, the district court, in adopting the magistrate's report,
found that Program Statement 5110.12 was entitled to Chevron deference
and that the Program Statement's interpretation of section 4042(b) was
permissible and, therefore, controlling.
In affording Chevron deference to Program Statement 5110.12, the
district court erred. The Supreme Court and this Court have made clear
that interpretations of statutes not arrived at by "formal adjudication
or notice-and-comment rulemaking", e.g. opinion letters, "policy
statements, agency manuals, and enforcement guidelines, all of which
lack the force of lawdo not warrant Chevron-style deference."
Christensen v. Harris County, 120 S.Ct. 1655, 1662 (2000). These
interpretations are entitled to respect, but only to the extent that
they have the "power to persuade". Id. (quoting Skidmore v. Swift &
Co., 323 U.S. 134, 140 (1944)). See also Reno v. Koray, 115 S.Ct. 2021,
2027 (1995) (observing that a Bureau of Prisons Program Statement is
entitled to "some deference" if it represents a permissible construction
of the statute); Bussian v. RJR Nabisco, Inc., 223 F.3d 286, 296 (5th
Cir. 2000) (quoting Christensen for the proposition that interpretations
that lack the force of law are only entitled to respect according to
their "power to persuade").5
5We are aware that in Royal v. Tombone, 141 F.3d 596, 600 (5th Cir.
1998), a panel of this Court, citing Koray, stated that Program
5

II.
Interpretation of 18 U.S.C. § 4042(b)
When interpreting a statute, the starting point is the statute's
text. Reich v. Arcadian Corp., 110 F.3d 1192, 1195 (5th Cir. 1997)
(quoting Estate of Cowart v. Nicklos Drilling Co., 112 S.Ct. 2589, 2594
(1992)). The meaning of a particular word or phrase "cannot be
determined in isolation, but must be drawn from the context in which it
is used." Arcadian, 110 F.3d at 1195-96 (quoting Deal v. United States,
113 S.Ct. 1993, 1996 (1993). Therefore, a term is not ambiguous if,
although subject to different interpretations in isolation, "all but one
of the meanings is ordinarily eliminated by context." Id. If possible,
the statute should be construed such that "every word has some operative
effect." Arcadian, 110 F.3d at 1196 (quoting United States v. Nordic
Village, Inc., 112 S.Ct. 1011, 1015 (1992)). It is important to "look
to the structure and language of the statute as a whole." Arcadian, 110
F.3d at 1196 (quoting National R.R. Passenger Corp. v. Boston and Maine
Corp., 112 S.Ct. 1394, 1401 (1992). With these principles in mind, we
turn to the interpretation of section 4042(b).
First, section 4042(b)(1) explains the release notification scheme.
Initial notification is only required if a person described in section
Statements will be upheld if they represent a permissible construction
of the statute. We would likely be bound by this aspect of Royal were
it not for the intervening decision of the Supreme Court in Christensen,
which made clear that interpretations like Program Statements, even if
abstractly permissible, are not controlling and therefore do not bind
this Court as a permissible interpretation entitled to Chevron deference
would. We also note this Court's application of Christensen in Bussian.
6

4042(b)(3) is to be released on supervised release. Notification of a
subsequent change of residence is only required while the prisoner
remains on supervised release. The notification requirement ends when
the prisoner's entire sentence for the current conviction, including the
term of supervision, is served. The notification requirement, running
as it does with the supervised release portion of the sentence for the
current conviction, seems virtually part of that sentence. It seems
illogical to impose the notification requirement to run with the
sentence for a crime that does not itself trigger notification.
Second, and more significantly, Henrikson correctly observes that
language in section 4042(b)(2), which describes the information the
notification must contain, supports his interpretation of section
4042(b)(3). Section 4042(b)(2)(B) requires disclosure of "the
prisoner's criminal history, including a description of the offense of
which the prisoner was convicted." Clearly, Congress intended "offense
of which the prisoner was convicted" to refer to the current conviction,
as it was obviously clarifying that it intended "criminal history" to
include the current conviction. No other reading of section
4042(b)(2)(B) is reasonable. We agree with Henrikson that the similar
language in the next paragraph, section 4042(b)(3), "if the prisoner
was convicted of", also refers only to the current conviction.
Finally, the language "was convicted of" in section 4042(b)(3)
seems implicitly to refer to a single eventthe current conviction. If
Congress intended for more than the current conviction to be
7

scrutinized, words such as "if the prisoner has been convicted of",
liekly would have been employed.
We do not believe that section 4042(b)(3) is ambiguous or that in
this section Congress has explicitly or implicitly left a gap in which
the Bureau is free to regulate. Even applying the "some deference"
standard, we do not find the Bureau's construction of section 4042(b)
in this respect as set forth in Program Statement 5110.12 to be a
permissible, much less a persuasive, one. An examination of the
statute's text and overall scheme manifest that Congress was only
requiring the Bureau to notify if the prisoner's current conviction was
for a crime of violence or a drug trafficking crime. We hold that,
because the Bureau does not contend that Henrikson's current conviction
is for a crime of violence or a drug trafficking crime, section 4042(b)
does not require the Bureau to notify state and local law enforcement
of Henrikson's release.6
6The Bureau's consistent position, from its first informing
Henrikson of its intention to give the § 4042(b) notification, through
the administrative proceedings consequent on Henrikson's objection
thereto, and in all proceedings in the district court and in this Court,
has been that it intends to give the notification because it is required
to do so by § 4042(b),which is concedely mandatory, and the Bureau has
never suggested that it intends to, or has determined to, give
notification to state and/or local law enforcement respecting Henrikson
on any other basis or for any other reason, or that it would give such
notification if not required to do so by § 4042(b). And, the Bureau's
only position in this court has been that Henrikson is not entitled to
relief because § 4042(b) required it to give the notification. The
plain inference from all this is that the Bureau does not intend to give
the notice if we hold it is not within § 4042(b). We hold it is not
within § 4042(b). Consequently no question has been presented, and we
do not address, whether Henrikson would have any general constitutional
or statutory right to prevent the Bureau from notifying state and/or
8

Conclusion
For the reasons stated, we hold that the Bureau's construction of
section 4042(b) is incorrect in the respect noted and the district
court's judgment upholding the Bureau's interpretation of section
4042(b) in this regard is accordingly REVERSED.
REVERSED
local law enforcement.
9