Scott Glenn killed the first group of women in NY including his wife and kid. He made a deal with the Gov, now Senator, the Willaim Atherton character to let him go if he told where he kept the 3 women who survived before he let them die of starvation. And of course one of those three women ended up being the killer of the second group in California, Nora. Whose name was Samantha before, when she was in NY. No one knew they were the same people until toward the end of the movie. She was trying to frame him for the killings in California, because he got away with murder and the torturing of her in NY.
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