OPINION OF THE COURT
Defendant Douglas Richards, the former Director of Human Resources for the government of Luzerne County, Pennsylvania, appeals the sentence he received after pleading guilty to accepting a bribe. Richards objects to the District Court’s enhancement of his sentence pursuant to § 2C1.2(b)(3) of the Sentencing Guidelines for being a government official in a high-level decision-making or sensitive position. His appeal requires us to determine, as a matter of first impression in our Court, the standard of review we apply to a district court’s application of a sentenсing enhancement pursuant to § 2C1.2(b)(3). We conclude that the clearly erroneous standard is appropriate when reviewing a district court’s determination that the enhancement under § 2C1.2(b)(3) applies based on the facts presented. Under that standard, we hold that the District Court did not clearly err in finding that Richards was a public official in a high-level decision-making or sensitive position. Accordingly, we will affirm.
I. Facts and Procedural History
In December 2009, Richards was charged with one count of violating 18 U.S.C. § 666(a)(1)(B) for accepting a bribe in excess of $1,000 but less than $5,000 in connection with assistance given by Richards to Continental Cоnsultants, a New York consulting firm interested in contracting with Luzerne County. Richards accepted $1,000 and free New York Mets tickets from Continental Consultants. In exchange, he helped Continental Consultants to obtain a contract with Luzerne County to provide temporary employment services for individuals hired to perform cleanup work in the aftermath of a 2006 flood. Continental Consultants paid Richards because he “got the ball rolling” on
Richards pled guilty to violating § 666(a)(1)(B). In the Presentence Report, the probation officer recommended a sentence of fifteen to twenty-one months’ imprisonment. This recommendation was based on § 2C1.2(a)(1), the applicable guideline for a violation of § 666(a)(1)(B), which set the base offense level at eleven. The probation officer then added two levels pursuant to § 2C1.2(b)(1) because the offense involved more than one gratuity. Next, the probation officer added four levels pursuant to § 2C1.2(b)(3) because the offense involved a public official in a high-level decision-making or sensitive position. The officer then subtracted three levels for Richards’s acceptance of responsibility pursuant to § 3E1.1. The resulting offense level was fourteen. With a criminal history placing him in Category I, the advisory sentencing range was therefore fifteen to twenty-one months.
Richards was sentenced on December 13, 2010 to fifteen months’ imprisonment and two years of supervised release. At the sentencing hearing, Richards objected to the four-level enhancement pursuant to § 2C1.2(b)(3). That enhancement provides:
If the offense involved an elected public official or any public official in a high-level decision-making or sensitive position, increase by 4 levels. If the resulting offense level is less than level 15, increase to level 15.
U.S.S.G. § 2C1.2(b)(3). The commentary to that section, in turn, provides:
(A) Definition. — “High-level decision-making or sensitive position” means a position characterized by a direct authority to make decisions for, or on behalf of, a government department, agency, or other government entity, or by a substantial influence over the decision-making process.
(B) Examples. — Examples of a public official in a high-level decision-making position include a prosecuting attorney, a judge, an agency administrator, a law enforcement officer, and any other public official with a similar level of authority. Examples of a public official who holds a sensitive position include a juror, a law enforcement officer, an election official, and any other similarly situated individual.
Id. at cmt. n.3. Had that enhancement not been applied, Richards would have faced an advisory sentencing range of six to twelve months.
Richards argued that hе was not a public official in a high-level decision-making or sensitive position because: (1) he could not hire or fire anyone; (2) he could not bind the County; (3) he could not act officially on the County’s behalf; (4) he had administrative, not policymaking, duties; (5) he reported to superiors, who, in turn, reported to the County Commissioners; and (6) the sentencing court did not apply the high-level government official enhancement to Richards’s superior, William Brace, who was also implicated in this bribery scheme.
Richards did acknowledge, however, that, as part of his job duties, he would refer threе or four of the top candidates for a job to the County Commissioners for their ultimate hiring. He also administered his own department and made many different types of recommendations to his superiors, the Deputy County Clerk, the County Clerk, and the County Commissioners.
At sentencing, the Government introduced the job description for Richards’s
The District Court concluded that Richards was subject to the enhancement under § 2C1.2(b)(3). The District Court sentenced Richards to fifteen months’ imprisonment and two years of supervised release. Richards filеd a timely notice of appeal. 1
II. Discussion
On appeal, Richards contends that the District Court erred in finding him subject to the enhancement because, although he was a public official, he did not occupy a high-level decision-making or sensitive position. Before we can determine whether the District Court was correct in applying the enhancement, however, we must first decide under what standard we are to review the District Court’s decision — de novo, abuse of discretion, or clear error.
A. Standard of Review
Richards argues that
de novo
review is warranted because the question before us involves an interpretation of the Sentencing Guidelines.
See, e.g., United States v. Grier,
While we review de novo a district court’s interpretation of the Guidelines, here, the District Court’s interpretation of the Guidelines is not really at issue. Richards does not quarrel with the District Court’s articulation of what it means to be a governmеnt official in a high-level decision-making or sensitive position, for the District Court used the definition of the enhancement exactly as it is recited in the Guidelines. Rather, Richards disagrees with the District Court’s conclusion that the facts regarding his employment fit within the Guidelines definition of a government official in a high-level decision-making or sensitive position. This is not properly characterized as an issue of Guidelines interpretation as Richards urges.
These same considerations guide our decision here. A district court undoubtedly deals with more applications of
Richards, however, urges that we follow
United States v. Stephenson,
We therefore decline to apply
de novo
review. Left with a choice between reviewing for clear error or abuse of discretion, “ ‘the nature of the question presented’” persuades us that, in order to give the appropriate level of dеference, we should review for clear error, rather than for abuse of discretion.
Buford,
Clear error review is appropriate when the legal issue decided by the district court is, in essence, a factual question. For example, in
United States v. Brown,
We reasoned that clear error review is appropriate because when the legal issue involves “a ‘strictly factual test,’ such that once the test is stated no legal reasoning is necessary to the resolution of the issue,” “[t]he considerations related to legal correctness and the developmеnt of precedent” that favor a less deferential standard of review are of diminished concern. Id. at 644. “At the same time, the factual nature of the determination favors the trial court’s experience and first-hand observation of testimony and other evidence.” Id. An appellate court’s review of these kinds of decisions, moreover, “will not be of much use in future cases with different fact patterns.” Id. at 645.
As in Brown, the legal test we are applying here is in essence a factual inquiry. That test is set forth in the definition of a government official in a high-level decision-making or sensitive position, and under that test, a district court simply needs to find facts that will answer — either yes or no — whether the government official possesses “direct authority to make decisions” for a government entity or whether the official possesses “substantial influence over the decision-making process.” § 201.2(b)(3) cmt. n.3(A). The answer to these questions are, as in Brown, matters of fact; either a government official will or will not possess “direct authority to make decisions,” or will or will not possess “substantial influence over the decision-making process.” Id. These facts will form the sole basis for the district сourt’s conclusion whether to subject a defendant to an enhancement under § 201.2(b)(3). The highly factual nature of this inquiry, and a trial court’s relative institutional advantages in conducting it, weigh in favor of clear error review. Moreover, our review of these decisions will be of little help in future cases because the next government official inevitably will be in a different position and have different job responsibilities than the defendant does here.
We are not alone in concluding that whether an individual is a public official in a “high-level decision-making or sensitive position” is a factual determination, reviewable on appeal for clear error. The Courts of Appeals for the Fourth and Sixth Circuits have so concluded, although without extensive discussion of the issue.
See United States v. Mack,
Our decision to apply clear error review is further supported by the fact that many оther sentencing enhancements, which call for similarly factual determinations, are also reviewed for clear error. For example, we and other courts of appeals review a district court’s decision to apply the “organizer or leader” enhancement, U.S.S.G. § 3B1.1, for clear error.
See United States v. Starnes,
Similarly, we review for clear error a district court’s reduction of a defendant’s base offense level pursuant to § 3B1.2 of the Guidelines for being a “minimal participant” or “minor participant” in criminal activity.
See United States v. Carr,
We note that we have made general pronouncements in the past that we review a district court’s application of the Guidelines to the facts for abuse of discretion.
See, e.g., United States v. Blackmon,
As noted above, our decision to apply clear error, rather than abuse of discretion, review, is, however, not very significant. The differences that would result under the different standards of review are few, if any. That is because a district court would “abuse its discretion” if it based its decision on clearly еrroneous facts.
See Wise,
Therefore, we will review the District Court’s application of the enhancement pursuant to § 201.2(b)(3) for clear error.
B. Application of the Enhancement
Richards contends that he is not subject to the enhancement because he did not possess the requisite power to make decisions for a government entity, nor the ability to influence decision-making by other government offiсials. He relies principally on
Stephenson
and
United States v. Alter,
In
Stephenson,
the court concluded that the defendant, an export licensing officer in the Department of Commerce, was not subject to the enhancement. Although his job of deciding whether to approve applications to export high-technology equipment to the Soviet Union and China “involved some degree of discretion and required
In
Alter,
the court concluded that the director of a halfway house within the federal Bureau of Prisons was not subject to the enhancement.
We conclude that the District Court did not clearly err in finding Richards subject to the enhancement. Richards admitted that, as part of his job duties, he would refer three or four of the top candidates for a job to the County Commissioners for their ultimate hiring. He also administered his own department and made recommendations to his superiors, the Deputy County Clerk, the County Clerk, and the County Commissioners. Moreover, the job description, the accuracy of which Richards did not contest, supports application of the enhancement. According to the description, Richards was “responsible for designing, implementing and maintaining a centralized Human Resource Department.” He also was responsible for “writing], maintainfing] and applying] the County policies and guidelines by administering and directing a comprehensive human resource program, formulating and recommending policies, regulations, and practices for carrying out programs, consulting and advising the County staff to coordinate the various phases of the policies, practices, ordinances, and resolutions.” (App. at 55-56.) The District Court did not clearly err in concluding that these job duties and responsibilities evidenced Richards’s ability to substantially influence the decision-making process. 6
For the foregoing reasons, we will affirm the judgment of the District Court.
Notes
. The District Court had jurisdiction pursuant to 18 U.S.C. § 3231. We have jurisdiction pursuant to 28 U.S.C. § 1291 and 18 U.S.C. § 3742(a).
. We should note that the Court also based its holding in part on the existence of 18 U.S.C. § 3742(e), which requires courts of appeals to "accept the findings of fact of the district court unless they are clearly erroneous” and to "give due deference to the district court's application of the guidelines to the facts.” Subsequently, the Court decided
United States v. Booker,
. At the time the defendant in
Stephenson
was sentenced, the enhancement was set forth in § 2C 1.1 (b)(2), and called for an eight-level increase in the offense level “ ‘[i]f the offense involved a bribe for the purpose of influencing ... any official holding a high level decisionmaking or sensitive position.' "
.
See also United States v. Snow,
.
See also United States v. Leiskunas, 656
F.3d 732, 739 (7th Cir.2011);
United States
v.
McElwee,
. We also reject Richards’s argument that the District Court erred in applying the enhancement to him because the District Court did not apply it to Richards’s supervisor, William Brace. Richards does not support his argument with any comparative evidence and has not demonstrated that he is similarly situated to Brace for sentencing purposes. Without showing that Brace’s “circumstances exactly paralleled” Richards’s, "a court should not consider sentences imposed on defendants in other cases in the absence of such a showing” by Richards.
United States v. Iglesias,
