In 1927, as the scheduled executions approached, Massachusetts governor Alvan T. Fuller appointed a three-man panel to advise him as he considered clemency.

Then, as now, Mr. Bush had two criteria for considering clemency: Is there any doubt about guilt?

Mr. Bush would not consider clemency earlier, partly because of Lionel's problems in prison, which reportedly include kicking a guard and insubordination.

"After my visit with her, I remain convinced that gender should not be given any weight in considering clemency," Chairman Rodriguez said recently.

Mr. Bush would not consider clemency earlier in the sentence, which began in March 2001, partly because the boy had kicked a guard and had been rude.

Anna Surratt pleaded repeatedly for her mother's life with Judge Advocate General Joseph Holt, but he refused to consider clemency.

At first Lionel had hundreds of supporters, who took some comfort in Gov. Jeb Bush's promise to consider clemency.

Department officials acknowledged in internal memorandums that it was highly unusual even to consider clemency in cases in which the prisoners themselves declined to file their own applications.

The United States attorney's office was notified Jan. 16 that the president was considering clemency.

LEAD: President Saddam Hussein refused today to consider clemency for his son, who is accused of killing one of his father's bodyguards.