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I had thought this was largely the case too ... that over-zealous law enforcement might be labeling people as "sex offenders" for urinating behind a tree and such and forcing them to register ... then I looked up our immediate area on our state's megan's law site. I was shocked.
Our state lists the offender's offense, and nearly all the ones listed were "class 3" or worse, meaning there had been non-consentual contact of a sort that I won't get into on this forum, but it goes way past what you describe ... or the victim was 14 or under and the offender was 21 or over ... again not what you listed above as the 17 and 18 years of age scenario.
It was shocking to see the number of offenses and the severity of them in our area, and we're in what I'd consider to be a good neighborhood. At least most were not considered to be violent offenders, small consolation though that may be.
Scary stuff.