Florida Senate - 2017 CS for CS for SB 972 By the Committees on Judiciary; and Criminal Justice; and Senator Bracy 590-04114-17 2017972c2 1 A bill to be entitled 2 An act relating to victims of human trafficking; 3 creating s. 787.061, F.S.; providing a short title; 4 creating s. 787.062, F.S.; defining terms; creating s. 5 787.063, F.S.; providing legislative findings; 6 creating a civil cause of action for victims of human 7 trafficking, or for the Statewide Council on Human 8 Trafficking on their behalves, against a trafficker or 9 facilitator; providing procedures and requirements for 10 bringing a claim; requiring a court to impose a civil 11 penalty against a defendant if a victim, or the 12 council on the victim’s behalf, prevails; requiring a 13 court to impose a civil penalty and award it equitably 14 to one or more law enforcement agencies under certain 15 circumstances; providing that such actions are not 16 subject to a statute of limitations; requiring the 17 Attorney General to recommend one or more educational 18 programs designed to train employees of public lodging 19 establishments in the identification and reporting of 20 suspected human trafficking; providing that the owner 21 or operator of a public lodging establishment may not 22 be held vicariously liable if certain employees 23 complete such educational programs within a specified 24 time; creating s. 787.064, F.S.; requiring the council 25 to issue an annual report to the Legislature which 26 includes specified information, by a specified date; 27 creating s. 794.11, F.S.; defining terms; authorizing 28 subpoenas in certain investigations of sexual offenses 29 involving child victims; specifying the purpose of 30 such subpoenas; requiring a subpoena to contain 31 certain information; requiring the reimbursement of 32 subpoenaed witnesses; authorizing the recipient of the 33 subpoena to petition a court; prohibiting the 34 disclosure of the existence or contents of a subpoena 35 under certain circumstances; providing exceptions; 36 requiring certain notice to be provided in a subpoena 37 that contains a nondisclosure requirement; exempting 38 from production certain records, objects, and other 39 information; providing for the return of records, 40 objects, and other information produced; specifying 41 timeframes within which records, objects, and other 42 information must be returned; providing for service 43 and enforcement of the subpoenas; providing penalties 44 for a violation of the subpoena or nondisclosure 45 requirement; providing immunity for certain persons 46 complying with the subpoenas in certain circumstances; 47 providing for judicial review, and extensions, of such 48 nondisclosure requirement; amending s. 16.617, F.S.; 49 adding functions and duties for the council; providing 50 for administration of the trust fund by the council; 51 providing appropriations; providing an effective date. 52 53 Be It Enacted by the Legislature of the State of Florida: 54 55 Section 1. Section 787.061, Florida Statutes, is created to 56 read: 57 787.061 Short title.—Sections 787.061-787.065 may be cited 58 as the “Civil Action for Victims of Human Trafficking and 59 Prevention of Human Trafficking Act.” 60 Section 2. Section 787.062, Florida Statutes, is created to 61 read: 62 787.062 Definitions for the Civil Action for Victims of 63 Human Trafficking and Prevention of Human Trafficking Act.—As 64 used in ss. 787.061-787.065 the term: 65 (1) “Council” means the Statewide Council on Human 66 Trafficking within the Department of Legal Affairs, as created 67 in s. 16.617. 68 (2) “Facilitator” means a person who knowingly, or in 69 willful blindness, assists or provides goods or services to a 70 trafficker which assist or enable the trafficker to carry out 71 human trafficking. 72 (3) “Human trafficking” has the same meaning as provided in 73 s. 787.06. 74 (4) “Trafficker” means any person who knowingly engages in 75 human trafficking, attempts to engage in human trafficking, or 76 benefits financially by receiving anything of value from 77 participation in a venture that has subjected a person to human 78 trafficking. 79 (5) “Trust fund” means the Trust Fund for Victims of Human 80 Trafficking and Prevention created in s. 787.0611. 81 (6) “Venture” means any group of two or more individuals 82 associated in fact, whether or not a legal entity. 83 (7) “Victim of human trafficking” means a person subjected 84 to coercion, as defined in s. 787.06, for the purpose of being 85 used in human trafficking, a child under 18 years of age 86 subjected to human trafficking, or an individual subjected to 87 human trafficking as defined by federal law. 88 (8) “Willful blindness” occurs when a person’s suspicions 89 are aroused about a particular fact and, while he or she 90 realizes its probability, he or she deliberately refrains from 91 obtaining confirmation of or acting on the fact because he or 92 she wants to remain in ignorance, such that knowledge of the 93 fact avoided can reasonably and fairly be imputed to the person 94 who avoided confirming it. 95 Section 3. Section 787.063, Florida Statutes, is created to 96 read: 97 787.063 Civil action for victims of human trafficking.— 98 (1) FINDINGS.—The Legislature finds that, to achieve the 99 state’s goals relating to human trafficking set forth in s. 100 787.06(1)(d), it is necessary to provide a civil cause of action 101 for the recovery of compensatory and punitive damages. 102 (2) CIVIL CAUSE OF ACTION.— 103 (a) A victim of human trafficking has a civil cause of 104 action against the trafficker or facilitator of human 105 trafficking who victimized her or him, and may recover damages 106 for such victimization as provided in this section. 107 (b) The council, with the consent of the victim, may bring 108 a civil cause of action against a trafficker or facilitator of 109 human trafficking who victimizes a person in this state. 110 (c) If the council prevails in any action, the trust fund 111 shall hold moneys awarded to the victim for distribution to the 112 victim or her or his parent, legal guardian, or estate. However, 113 if the victim’s parent or legal guardian knowingly, or through 114 willful blindness, participated in the human trafficking, such 115 person is not entitled to any distribution or benefit from the 116 trust fund. If there is no person or estate to appropriately 117 receive the funds, they must remain in the trust fund and be 118 used for purposes of the trust fund, as described in s. 119 787.0611. 120 (d) The action may be brought in any court of competent 121 jurisdiction and the standard of proof is a preponderance of the 122 evidence. 123 (e) A victim, or the council on behalf of the victim, who 124 prevails in any such action is entitled to recover economic and 125 noneconomic damages, penalties, punitive damages, reasonable 126 attorney fees, reasonable investigative expenses, and costs. 127 1. The measure of economic damages for services or labor 128 coerced from the victim of human trafficking shall be the 129 greater of the fair market value of the labor or services 130 provided or the amount realized by the trafficker. For purposes 131 of this subparagraph, the terms “labor” and “services” have the 132 same meanings as provided in s. 787.06. 133 2. The measure of economic damages for every day that the 134 human trafficking was ongoing shall be calculated as a daily 135 amount of the compensation payable to a person under s. 136 961.06(1)(a). 137 3. Economic damages also include past and future medical 138 and mental health expenses; repatriation expenses, when a victim 139 elects repatriation; and all other reasonable costs and expenses 140 incurred by the victim in the past or estimated to be incurred 141 by the victim in the future as a result of the human 142 trafficking. 143 4. Noneconomic damages shall be calculated as in a tort 144 action. 145 (f) The remedies provided in this section are in addition 146 to and cumulative with other legal and administrative remedies 147 available to victims of human trafficking, except that a victim 148 may not recover under both this section and s. 772.104(2). 149 (g) If a victim or the council, on behalf of the victim, 150 prevails in an action under this section, in addition to any 151 other award imposed, the court must award a civil penalty 152 against the defendant in the amount of $100,000. This penalty is 153 in addition to, and not in lieu of, any other damage award. The 154 civil penalty must be assessed by the court and may not be 155 disclosed to the jury. Proceeds from the civil penalty must be 156 deposited into the trust fund. 157 (h) If one or more law enforcement agencies rescued the 158 victim or located the property upon which the abuse or 159 exploitation of a victim or victims had occurred, the court must 160 impose a civil penalty against the defendant in the amount of 161 $50,000 and award the penalty to the law enforcement agencies to 162 fund future efforts to combat human trafficking. The court must 163 equitably distribute the civil penalty among the law enforcement 164 agencies. 165 (i) The court shall have specific authority to consolidate 166 civil actions for the same trafficker or facilitator for the 167 purpose of case resolution and aggregate jurisdiction. 168 (3) STATUTE OF LIMITATIONS.—There is no statute of 169 limitations for actions brought pursuant to this section. 170 (4) EDUCATIONAL PROGRAMS.—No later than January 31, 2018, 171 and periodically thereafter, the Attorney General shall consult 172 with state and national hotel and lodging associations and 173 recommend one or more educational programs designed to train 174 employees of public lodging establishments in the identification 175 and reporting of suspected human trafficking. The owner or 176 operator of a public lodging establishment may not be held 177 vicariously liable under this section if the establishment 178 requires only those employees the establishment expects to 179 routinely interact with guests to complete one of the 180 recommended educational programs within 30 days of hiring or by 181 July 1, 2018, whichever occurs later. 182 Section 4. Section 787.064, Florida Statutes, is created to 183 read: 184 787.064 Annual Report of the Civil Action for Victims of 185 Human Trafficking and Prevention of Human Trafficking Act.—The 186 council shall issue an annual report no later than October 1 of 187 each year to the President of the Senate and the Speaker of the 188 House of Representatives detailing for the prior fiscal year all 189 of the following: 190 (1) The status of the trust fund. 191 (2) Any actions and outcomes under s. 787.063. 192 (3) Any information that demonstrates the council’s 193 fulfillment of the purposes of the trust fund during the prior 194 fiscal year. 195 Section 5. Section 794.11, Florida Statutes, is created to 196 read: 197 794.11 Investigative subpoenas in certain cases involving 198 child victims.— 199 (1) DEFINITIONS.—As used in this section, the term: 200 (a) “Child” means a person younger than 18 years of age. 201 (b) “Child sexual offender” means a person required to 202 register as a sexual predator under s. 775.21 or as a sexual 203 offender under s. 943.0435 if at least one of the offenses that 204 qualified the person for such registration requirement involved 205 a victim who was a child at the time of the offense. 206 (c) “Criminal justice agency” means a law enforcement 207 agency, court, or prosecutor in this state. 208 (d) “Sexual exploitation or abuse of a child” means a 209 criminal offense based on any conduct described in s. 39.01(70). 210 (2) AUTHORIZATION.— 211 (a) A criminal justice agency may issue in writing and 212 cause to be served a subpoena requiring the production of any 213 record, object, or other information or testimony described in 214 paragraph (b) in any investigation of: 215 1. An offense involving the sexual exploitation or abuse of 216 a child; 217 2. A sexual offense allegedly committed by a child sexual 218 offender who has not registered as required under s. 775.21 or 219 s. 943.0435; or 220 3. An offense under chapter 847 involving a child victim 221 which is not otherwise included in subparagraph 1. or 222 subparagraph 2. 223 (b) A subpoena issued under this section may require: 224 1. The production of any record, object, or other 225 information relevant to the investigation. 226 2. Testimony by the custodian of the record, object, or 227 other information concerning its production and authenticity. 228 (3) CONTENTS OF SUBPOENAS.—A subpoena issued under this 229 section must describe any record, object, or other information 230 required to be produced and prescribe a reasonable return date 231 by which the record, object, or other information can be 232 assembled and made available. 233 (4) WITNESS EXPENSES.—Witnesses subpoenaed under this 234 section shall be reimbursed for fees and mileage at the same 235 rate at which witnesses in the courts of this state are 236 reimbursed. 237 (5) PETITIONS BEFORE RETURN DATE.—At any time before the 238 return date specified in the subpoena, the recipient of the 239 subpoena may, in the circuit court of the county in which the 240 recipient conducts business or resides, petition for an order 241 modifying or setting aside the subpoena or the requirement for 242 nondisclosure of certain information under subsection (6). 243 (6) NONDISCLOSURE.— 244 (a)1. If a subpoena issued under this section is 245 accompanied by a written certification under subparagraph 2. and 246 notice under paragraph (c), the recipient of the subpoena, and a 247 person to whom information is disclosed under subparagraph 248 (b)1., may not disclose to any person for a period of 180 days 249 the existence or contents of the subpoena. 250 2. The nondisclosure requirement in subparagraph 1. applies 251 if the criminal justice agency that issued the subpoena 252 certifies in writing that the disclosure may result in one or 253 more of the following circumstances: 254 a. Endangering a person’s life or physical safety; 255 b. Encouraging a person’s flight from prosecution; 256 c. Destruction of or tampering with evidence; 257 d. Intimidation of potential witnesses; or 258 e. Otherwise seriously jeopardizing an investigation or 259 unduly delaying a trial. 260 (b)1. A recipient of a subpoena may disclose information 261 subject to the nondisclosure requirement in subparagraph (a)1. 262 to: 263 a. A person to whom disclosure is necessary in order to 264 comply with the subpoena; 265 b. An attorney in order to obtain legal advice or 266 assistance regarding the subpoena; or 267 c. Any other person as authorized by the criminal justice 268 agency that issued the subpoena. 269 2. A recipient of a subpoena who discloses to a person 270 described in subparagraph 1. information subject to the 271 nondisclosure requirement shall notify such person of the 272 nondisclosure requirement by providing the person with a copy of 273 the subpoena. A person to whom information is disclosed under 274 subparagraph 1. is subject to the nondisclosure requirement in 275 subparagraph (a)1. 276 3. At the request of the criminal justice agency that 277 issued the subpoena, a recipient of a subpoena who discloses or 278 intends to disclose to a person described in sub-subparagraph 279 1.a. or sub-subparagraph 1.b. information subject to the 280 nondisclosure requirement shall provide to the criminal justice 281 agency the identity of the person to whom such disclosure was or 282 will be made. 283 (c)1. The nondisclosure requirement imposed under paragraph 284 (a) is subject to judicial review under subsection (13). 285 2. A subpoena issued under this section, in connection with 286 which a nondisclosure requirement under paragraph (a) is 287 imposed, must include: 288 a. Notice of the nondisclosure requirement and the 289 availability of judicial review. 290 b. Notice that a violation of the nondisclosure requirement 291 is subject to the penalties provided in paragraph (11)(b). 292 (d) The nondisclosure requirement in paragraph (a) may be 293 extended under subsection (13). 294 (7) EXCEPTIONS TO PRODUCTION.—A subpoena issued under this 295 section may not require the production of anything that is 296 protected from production under the standards applicable to a 297 subpoena duces tecum issued by a court of this state. 298 (8) RETURN OF RECORDS AND OBJECTS.—If a case or proceeding 299 resulting from the production of any record, object, or other 300 information under this section does not arise within a 301 reasonable time after such production, the criminal justice 302 agency to which it was delivered shall, upon written demand made 303 by the person producing it, return the record, object, or other 304 information to such person, unless the record was a copy and not 305 an original. 306 (9) TIME OF PRODUCTION.—A subpoena issued under this 307 section may require production of any record, object, or other 308 information as soon as possible, but the recipient of the 309 subpoena must have at least 24 hours after he or she is served 310 to produce the record, object, or other information. 311 (10) SERVICE.—A subpoena issued under this section may be 312 served as provided in chapter 48. 313 (11) ENFORCEMENT.— 314 (a) If a recipient of a subpoena under this section refuses 315 to comply with the subpoena, the criminal justice agency may 316 invoke the aid of any circuit court described in subsection (5) 317 or of the circuit court of the county in which the authorized 318 investigation is being conducted. Such court may issue an order 319 requiring the recipient of a subpoena to appear before the 320 criminal justice agency that issued the subpoena to produce any 321 record, object, or other information or to testify concerning 322 the production and authenticity of the record, object, or other 323 information. Any failure to comply with an order under this 324 paragraph may be punished by the court as a contempt of court. 325 All process in any such case may be served in any county in 326 which such person may be found. 327 (b) A recipient of a subpoena, or a person to whom 328 information is disclosed under subparagraph(6)(b)1., who 329 knowingly violates: 330 1. A nondisclosure requirement imposed under paragraph 331 (6)(a) commits a noncriminal violation punishable as provided in 332 s. 775.083. Each person to whom a disclosure is made in 333 violation of this subparagraph constitutes a separate violation 334 subject to a separate fine. 335 2. A nondisclosure requirement ordered by the court under 336 this section may be held in contempt of court. 337 (12) IMMUNITY.—Notwithstanding any other law, any person, 338 including any officer, agent, or employee, receiving a subpoena 339 under this section who complies in good faith with the subpoena 340 and produces or discloses any record, object, or other 341 information sought is not liable in any court in this state to 342 any customer or other person for such production or disclosure. 343 (13) JUDICIAL REVIEW OF NONDISCLOSURE REQUIREMENT.— 344 (a)1.a. If a recipient of a subpoena under this section, or 345 a person to whom information is disclosed under subparagraph 346 (6)(b)1., wishes to have a court review a nondisclosure 347 requirement under subsection (6), such recipient or person may 348 notify the criminal justice agency issuing the subpoena or file 349 a petition for judicial review in the circuit court described in 350 subsection (5). 351 b. Within 30 days after the date on which the criminal 352 justice agency receives the notification under sub-subparagraph 353 a., the criminal justice agency shall apply for an order 354 prohibiting the disclosure of the existence or contents of the 355 subpoena. An application under this sub-subparagraph may be 356 filed in the circuit court described in subsection (5) or in the 357 circuit court of the county in which the authorized 358 investigation is being conducted. 359 c. The nondisclosure requirement shall remain in effect 360 during the pendency of proceedings relating to the requirement. 361 d. A circuit court that receives a petition under sub 362 subparagraph a. or an application under sub-subparagraph b. 363 shall rule on such petition or application as expeditiously as 364 possible. 365 2. An application for a nondisclosure order or extension 366 thereof or a response to a petition filed under this paragraph 367 must include a certification from the criminal justice agency 368 that issued the subpoena indicating that the disclosure of such 369 information may result in one or more of the circumstances 370 described in subparagraph (6)(a)2. 371 3. A circuit court shall issue a nondisclosure order or 372 extension thereof under this paragraph if it determines that 373 there is reason to believe that disclosure of such information 374 may result in one or more of the circumstances described in 375 subparagraph (6)(a)2. 376 4. Upon a showing that any of the circumstances described 377 in subparagraph (6)(a)2. continues to exist, a circuit court may 378 issue an ex parte order extending a nondisclosure order imposed 379 under this section for an additional 180 days. There is no limit 380 on the number of nondisclosure extensions that may be granted 381 under this subparagraph. 382 (b) In all proceedings under this subsection, subject to 383 any right to an open hearing in a contempt proceeding, a circuit 384 court must close any hearing to the extent necessary to prevent 385 the unauthorized disclosure of a request for records, objects, 386 or other information made to any person under this section. 387 Petitions, filings, records, orders, certifications, and 388 subpoenas must also be kept under seal to the extent and as long 389 as necessary to prevent the unauthorized disclosure of any 390 information under this section. 391 Section 6. Paragraph (f) is added to subsection (4) of 392 section 16.617, Florida Statutes, to read: 393 16.617 Statewide Council on Human Trafficking; creation; 394 membership; duties.— 395 (4) DUTIES.—The council shall: 396 (f) Perform the functions and duties as provided in ss. 397 787.061-787.065 and administer the Trust Fund for Victims of 398 Human Trafficking and Prevention as created in s. 787.0611. 399 Section 7. For the 2017-2018 fiscal year, the sums of 400 $153,000 in recurring funds and $29,000 in nonrecurring funds 401 from the Crimes Compensation Trust Fund are appropriated to the 402 Department of Legal Affairs, and three full-time equivalent 403 positions are authorized, for the purpose of implementing this 404 act. 405 Section 8. This act shall take effect October 1, 2017.