Document: 543 U.S. 371 CLARK, FIELD OFFICE DIRECTOR, SEATTLE, IMMIGRATION AND CUSTOMS ENFORCEMENT, ET AL.v.MARTINEZ No. 03-878. Supreme Court of United States. Argued October 13, 2004. Decided January 12, 2005.* If an alien is found inadmissible and ordered removed, the Secretary Homeland Security (Secretary) ordinarily must remove from country within 90 days. 8 U. S. C. § 1231(a)(1)(A). Here, Martinez, respondent in 03-878, Benitez, petitioner 03-7434, Cuban nationals who are both under 1182, were but detained beyond 90-day removal period. Each filed a habeas corpus petition challenging his continued detention. In Martinez's case, District that was not reasonably foreseeable Martinez be released appropriate conditions. The Ninth Circuit affirmed. Benitez's also accepted would occur future, nonetheless denied petition. Eleventh Held: 1. Under 1231(a)(6), may detain aliens period, only for so long as necessary to achieve removal. Section 1231(a)(6)'s operative language, "may period," applies equally all its subject, whether or those have been admitted country. Zadvydas v. Davis, 533 678, this interpreted 1231(a)(6) authorize detention "reasonably necessary" effectuate their Id., at 689, 699. This interpretation apply well. Even if statutory purpose constitutional concerns influencing construction present aliens, cannot justify giving same text different meaning depending on characteristics involved. Crowell Benson, 285 22, Raygor Regents Univ. Minn., 534 533, Jinks Richland County, 538 456, distinguished. Moreover, contrary Government's argument, nothing indicates authorizes until it approaches limits. Nor does 1182(d)(5) independently these aliens. Pp. 377-386. 2. Zadvydas, further held presumptive period during which alien's six months, he conditionally after time can demonstrate there "no significant likelihood future." S., 701. Government having suggested no reason longer alien, 6-month cases. Because Benitez well months orders became final, has brought forward indicate substantial subsists, each case determined Cuba foreseeable, petitions should granted. 386-387. affirmed; 337 F. 3d 1289, reversed; cases remanded. SCALIA, J., delivered opinion Court, STEVENS, O'CONNOR, KENNEDY, SOUTER, GINSBURG, BREYER, JJ., joined. concurring opinion, post, p. 387. THOMAS, dissenting REHNQUIST, joined Part I-A, 388. 1 CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR NINTH CIRCUIT. 2 Deputy Solicitor General Kneedler argued cause petitioners 03-878 03-7434. With him briefs Acting Clement, former Olson, Assistant Attorney Keisler, Patricia A. Millett, Donald E. Keener. 3 Christine Stebbins Dahl, by appointment 541 986, her brief Stephen R. Sady. 4 John Mills, 1084, Tracy Carlin Rebecca B. Creed.† 5 JUSTICE SCALIA Court. 6 An arriving States inspected immigration official, 66 Stat. 198, amended, 1225(a)(3), and, unless "clearly doubt entitled admitted," generally undergo proceedings determine admissibility, 1225(b) (2)(A). Meanwhile detained, subject Secretary's discretionary authority parole into See 1182(d)(5); CFR 212.5 (2004). If, conclusion proceedings, law provides "shall days," These concern continue order elapsed. 7 * Sergio Suarez (respondent 03-878) Daniel (petitioner 03-7434) arrived June 1980 part Mariel boatlift, see Palma Verdeyen, 676 2d 100, 101 (CA4 1982) (describing circumstances boatlift), paroled pursuant General's 1182(d)(5).1 Pet. Cert. 7; Wallis, 1290 (CA11 2003). Until 1996, federal permitted Cubans adjust status lawful permanent resident one year. Refugee Adjustment Act, 80 1161, notes following 1255. Neither nor qualified adjustment, however, because, they applied, men had become because prior criminal convictions When sought adjustment 1991, convicted assault with deadly weapon Rhode Island burglary California, when 1985, grand theft Florida, 3d, 1290. Both additional felonies applications denied: petty conviction (1996), (1998), attempted oral copulation force (1999), 7-8; two counts armed robbery, conveyance, structure, aggravated battery, carrying concealed firearm, unlawful possession firearm while engaged offense, possession, sale, delivery altered serial number (1993), 1290-1291. revoked December 2000. taken custody INS, commenced against him. 8. Immigration Judge convictions, 1182(a)(2)(B), lack sufficient documentation, 1182(a)(7)(A)(i)(I), removed Cuba. did appeal. INS expiration remained affirmed Appeals' decision review here. 9. 9 1993 (shortly imprisoned year), immediately initiated 1994, excludable deported §§ 1182(a)(2)(B) 1182(a)(7)(A)(i)(I) (1994 ed. Supp. V).2 1291. seek review. At completion state prison term, took removal, Ibid. September 2003, received notification eligible parole, contingent drug-abuse treatment program. Letter Paul D. General, William K. Suter, Clerk (Nov. 3, 2004). completed program pending before shortly On 15, 2004, days argument sponsoring family members.3 10 writ 28 2241 challenge Oregon release conditions believed appropriate. Smith, CV 02-972-PA (Oct. 30, 2002), App. 2a. Appeals summarily affirmed, citing Xi 298 832 (2002). Ashcroft, 03-35053 (Aug. 18, 2003), 1a. Northern Florida concluded "foreseeable future," Case 5:02cv19 MMP (July 11, pp. 2, 4, 45, 48. agreeing dissent Xi. 1289 (2003). We granted certiorari Mata, 540 1147 (2004); Crawford 1217 II 11 Title provides, relevant part, follows: 12 "An section 1182 title, removable 1227(a)(1)(C), 1227(a)(2), 1227(a)(4) title [Secretary] risk community unlikely comply released, shall terms supervision paragraph (3)." 13 By terms, provision three categories aliens: (1) (2) 1227(a)(4), (3) whom determines either flight risk. 678 (2001), (now Secretary) second category them statute's use "may," said, "suggests discretion," "not necessarily ... unlimited discretion. respect word `may' ambiguous." 697. light perceived ambiguity "serious threat" posed indefinite country, id., 699, statute permit related "basic [of] effectuating removal," 696-699. "[O]nce authorized." months; that, conditional 14 question presented cases, evoked contradictory answers Circuits, we applied covered first — is, "ordered [are] [§]1182." think answer yes. language without differentiation subject. To give words invent rather than interpret one. As recognized, construed "literally" detention, (as ultimately held) read "suggest [less than] discretion" detain, It cannot, do time. 15 dissent's belief compels result rests primarily case's statement "[a]liens yet gained initial admission very question," 682. 390, 393 (opinion J.). mistakes reservation answer. much hints adopted novel proposed today's dissent. considered indefinitely; relying ambiguities canon statutes avoid doubts, not. Despite repeated claims could given reading supra, 710, 716-717 J.), refused decide today. indeed decided distinction between nonadmitted find results answer.4 16 contention our "implausible," 389, hard reconcile fact identical espoused dissenters, included author Worse still, what . plausible" precisely dissent: 17 "[T]he majority's logic might treated differently. Yet plausible imply limit class another. admit possibility. result, difficult why `[a]liens question.'" 710-711 18 later "Mariel other illegal, seem consequence statute." 717 (emphasis added). Tellingly, majority negate charge. 19 Government, dissent, argues influenced such Be may, unusual ambiguous limiting called applications, even though standing alone, support limitation. lowest common denominator, were, govern. See, e. g., Leocal ante, 11-12, n. (explaining "the rule lenity applies" Court's "[b]ecause consistently, encounter application noncriminal context"); Thompson/Center Arms Co., 504 505, 517-518, (1992) (plurality opinion) (employing "a tax civil setting" "has applications"); 519 (SCALIA, judgment) (also invoking lenity). words, deciding constructions adopt, court consider consequences choice. raise multitude problems, prevail problems pertain particular litigant Court.5 20 takes issue maxim ground allows litigants "attack constitutionally invalid based doubts concerning factual circumstances" thereby effect "end run around black-letter doctrine governing facial as-applied challenges." Post, 396. accusation misconceives fundamentally role played avoidance interpretation. method adjudicating questions means. NLRB Catholic Bishop Chicago, 440 490, 502 (1979) (refusing engage extended analysis process applying "as considering issue"); Vermeule, Saving Constructions, 85 Geo. L. J. 1945, 1960-1961 (1997) (providing examples where narrowly resolved favor broader reading). Indeed, canon's chief justifications courts questions. tool choosing competing interpretations text, resting reasonable presumption Congress intend alternative raises serious doubts. Rust Sullivan, 500 173, 191 (1991); Edward DeBartolo Corp. Gulf Coast Building & Constr. Trades Council, 485 568, 575 (1988). thus means congressional intent, subverting it. And invokes avoidance, attempting vindicate rights others, believes; seeks own rights. little recommend interpretive approach advocated render every chameleon, change presence absence individual case. Cf. Harris States, 536 545, 556 (2002) (rejecting dynamic view interpretation, mean thing enacted another prevailing Constitution changed"). 21 relies most prominently upon 22 (1932). Brief Petitioners 29; Respondent 29. That involved gave Commissioner Employees' Compensation Commission "`full power hear of'" Longshoremen's Harbor Workers' Act. 62. precluded Commissioner's determination claimant employee, hence although bar judicial altogether, susceptible narrower employment, "essential condition precedent right make claim." latter raised total preclusion holding produce bears meanings, question. Always, claimants, permits employment finding. What corresponds Benson's judicially reviewable Zadvydas's once like one, hand, recent interpreting 1367(d). (2002), include, tolling limitations periods, waived immunity suit fails "`"unmistakably clear,"'" provisions subjecting suit, covered. 543-546. A subsequent decision, 456 (2003), political subdivisions since requirement unmistakably clear entities. 466. progression decisions remotely establish 1367(d) equivalent unlimited-detention/ limited-detention meanings urged us They hold single unchanging disposition (the periods) consented sued court.6 23 reject "authorizes limits." 27-28; 27-28. citation description none exists. limits; (one reading) limits, (in line consistent 697-699. seems believe, free "interpret" becoming inoperative "approach limits," able spare ourselves necessity ever finding unconstitutional applied. contain substantive dispositions difficulty past; need caution, whatever limits "approached." legal world live in. comes play when, ordinary textual analysis, more construction; functions them. Almendarez-Torres 523 224, 237-238 (1998); ex rel. Delaware Hudson 213 366, 408 (1909). purpose, some implicit command approaching produced bring about 24 passing briefs, intensively 1182(d)(5)(A).7 assuming final "alien admission" therefore provision, affirmatively less contrary, revoked, returned thereafter dealt manner any applicant admission." "dealt with" prescribed above. 25 26 fears security borders will compromised removed. so, attend it.8 But sanction face jurisprudence, remedy, dangerous principle judges 27 Since applies. 699-701. final. subsists despite passage (indeed, concedes repatriation negotiations Cuba); foreseeable; Accordingly, affirm judgment Circuit, reverse remand opinion. ordered. Notes: Together 03-7434,Benitez Rozos, Field Office Director, Miami, Customs Enforcement, Circuit. &#x2020; Briefs amici curiae urging reversal 03-7434 American Bar Association Dennis W. Archer, Gibbons, Lawrence Lustberg, Jonathan Hafetz, Philip G. Gallagher; Civil Liberties Union Judy Rabinovitz, Lucas Guttentag, Steven Shapiro, Engelmayer, David Sapir Lesser; Law Foundation Legal Action Center et al. George Quillin, Michael Halfenger, Leffel; Immigrant Advocacy Hanlon; Lawyers Committee Human Rights Fineman, Bill Lann Lee, Deborah Pearlstein; Service Organizations Joseph Tringali; North Carolina Justice Community Development James Coleman, Jr.; Regina Germain Bodney. Popeo Richard Samp Washington affirmance Catherine Stetson, H. Johnson, Gilbert Carrasco; National Resettlement Peter M. Friedman; Religious Isabelle Carrillo; Stuart Eizenstat Remes. Ross Melford O. Cleveland Professors authorities described herein exercised Naturalization (INS) now reside (hereinafter divisions Department (Bureau Enforcement Bureau Citizenship Services). Act 2002, 441(2), 442(a)(3), 451(b), 116 2192, 2193, 2196, 251(2), 252(a)(3), 271(b) (2000 ed., II) Before enactment Illegal Reform Responsibility 1996 (IIRIRA), 110 3009-546, ineligible enter denominated "excludable" "deported." 1182(a), 1251(a)(1)(A) ed.); seeLandon Plasencia, 459 21, 25-26 (1982). Post-IIRIRA, said "inadmissible" "removable." 1229a(e)(2) ed.). 1-year continues controversy. correct, contends, lacks him, back violated authorized 1253), again 1231(a)(6)). His current release, limited year, terminate. 212.12(h) (2004) (preserving discretion revoke parole). Thus, "continue[s] personal stake outcome" petitionLewis Continental Bank Corp., 494 472, 477-478 (1990) (internal quotation marks omitted). quite wrong saying,post, evidenced "consider terrorism special arguments made forms preventive detention," 696. affect terrorists simple sustained "special arrangement" 1537(b)(2)(C). Contrary contentions,post, 394, Salinas 522 52 (1997), perfectly construction. Salinas, rejected petitioner's invocation "unambiguous point consideration." 60. For reason, squarely addressed petitioner. 61 (holding case"). argues,post, 393-394, reached "only analyzing county defendant" Jinks, quasi-constitutional here overlooks critical claim aid itself include suits nonconsenting States; instead, analogy absent Raygor's directly controlling justified counties. contrast, ask simply announced compel compare analogous doubts; requires drawn 1182(d)(5)(A) reads "The temporarily prescribe case-by-case basis urgent humanitarian reasons public benefit regarded purposes shall, [Secretary], served forthwith return States." capacity demonstrated reaction inZadvydas. Less four expressly (and renewable indefinitely), whose presents national threat terrorist activities. Uniting Strengthening America Providing Appropriate Tools Required Intercept Obstruct Terrorism 2001 (USA PATRIOT ACT), 412(a), 115 350 (enacted Oct. 26, 2001) (codified 1226a(a)(6) II)). 29 concurring. 30 I join write separately emphasize scheme, possible thing, just that—a presumption. conceivable, necessary," class. shows true, then ascribed U.S.C. Zadvydas. 31 detaining poses risks. Upon certifying "reasonable grounds believe" certain activity specified statute, 1226a(a)(3) II), successive periods "if threaten safety person," 1226a(a)(6). 32 Finally, remains supervised release. 1231(a)(3); §241.5 And, penalties—including 1253(b); 695 ("[W]e nowhere deny [aliens] incarcerate violations conditions"). 33 CHIEF joins dissenting. 34 states period." Nevertheless, "to `reasonable time' limitation" "[b]ased of" "would concerns." "Aliens country," assured us, question." 35 Today, holds distinction—which "made difference" 693—is actually irrelevant, "[t]he subject." Ante, 378. While wholeheartedly agree fidelity squared squared, wrongly overruled. respectfully 36 begin addressing fair required sound am aware. drives "lowest denominator" principle. 380. 37 implausible. due concerns. 690-696. Security) 38 explicitly reserved 379. front center appeared introduction worth repeating full: 39 "In [§ 1231(a)(6)] indefinitely secure deal subsequently Aliens Based concerns, construe limitation, federal-court review." 682 (citation omitted; emphasis original). 40 stated "read [the statute] Constitution's demands." 689. repeatedly emphasized distinctions among various groups makes distinctions. 693-694 (noting considerations applicable admissible aliens); [do not] require branches' control entry States"); 696 heightened deference judgments branches matters security"). 41 inconsistent qualifications. true Zadvydas' regardless how "very different" trivial plainly distinguish There go out way leave aside "terrorism circumstances," 696, disavow "consider[ation of] States," 695, extracts across board, ibid. rationalization "leave unprotected spot Nation's armor," 695-696 omitted), incorrect. pervade evidence turned 42 tethered specific term Its "in demands," depended work [it]," One expect today, then, follow two-step procedure employed Benitez. Step dictated Zadvydas: move step Martinez. adopt did). 43 departing unpersuasive. says "invent[ing] interpret[ing] one," 378; preclude "giving meaning" 380 original); forestall establishing cases," 386. principles, warrant advocates. established unchanging, implausible, 1231(a)(6): depends surrounding type 44 grant understanding classes aliens— some, others. "change" involved, removal" differ 386, O'CONNOR's 387, concede may. sense context. 45 379-380 (citing 710-711, J.)). view, stresses demonstrates, rested premise "it another." 710. disagreed assumption 1231(a)(6). "logic differently." precisely, statements show. properly, take given, reductio ad absurdum B 46 strains recharacterize thinks "[i]t limitation." claims, govern." disagree. 47 matter, itself. explained above, govern correct governs, careful drew irrelevant best misleading worst. reading, come identity Again, 48 Beyond offers scant idea stripped down denominator[s]." attempts 383, 6, exactly today impermissible. 1367(d),1 extent doing entity. explicit point: 49 "Although [Raygor] dismissed sovereign grounds, `serious doubt' protecting State's abrogation [N]o arises respondent—which State, subdivision State—falls definition `any asserted subsection (a) [of 1367].'" 466 50 1367(d)—which "any (a)" 1367—to hinge "hold 383. concedes, defendant. 383-384, 6. failure reconciled Raygor: 51 tension (1997). There, bribery 666(a)(1)(B), constitutionality 666(a)(1)(B) facts case." 60 Unlike disclaimed examination Court: "Whatever 666(a)(1)(B)'s extend proper bounds." 61. mistaken rejection merits. 381, 5. petitioner, phrased solely Petitioner, T. 96-738, i, never claimed unconstitutional, C More importantly, history likely mischievous consequences. modern origins form canon. Traditionally, mere Instead, commanded courts, faced statute—one unconstitutional—to choose reading.2 traditional version reach doubtful adopting saves invalidity. asking whether, plaintiff; plaintiff, picks (constitutional) reading. inquire third parties court, otherwise implicates third-party 53 suggests mistaken. Courts look using version. (again, involves rights). denominator prompted infect statute— unproblematic severable dubious applications. end challenges statutes: attack circumstances. 54 misses answering "is means," "Congress doubts." 381. "raises doubts," employ usual rules adjudication. 381 turns problems"); 690-696 (extensively employing analysis). Those doctrines like. perform all, form, assume intends full allows." Booker, 320 (THOMAS, part). Only my bound narrowing present. principle, narrowed materialize. short, Executive's unadmitted aliens—even constitutional. 55 All sole analysis. plurality (reaffirmed footnote dictum 8), S 517 (1992)). rule, vagueness doctrine, ensure subjected prosecution adequate notice conduct prohibits. Cf., McBoyle 283 25, (1931). distinguishable, (rightly wrongly) lenient cases.3 straightforward challenge. concerned arose respondents there, hypothetical shows. nonconstitutionally statutes, wholly independent Either way, restatement principles. 56 illustrate exception normal operation adjudication creates. provided severed applications.4 indicated examine application. After severability clause, Ma, remain open Although formally it, followed doubt.5 clause contemplates application-by-application constitutionality. 57 misapprehends approach. "spare [us] applied," 384, case," 382. My this. leaves plenty room invalidation unambiguously unconstitutional. depend permissible, ambiguous. Granted, guilty leaving `approach limits.'" 384. hardly absurd result— considers absurd. Every canon, rejecting "limit." 58 truth, aggressive greater danger. disturbing clear. St. Cyr, 289, 327-336 (2001) dissenting); Public Citizen Justice, 491 440, 481-482 (1989) (KENNEDY, judgment); Lowe SEC, 472 181, 212-213 (1985) (White, result). others wholesale searching them—or, worse yet, doubts—despite problem (at least, pose problems," 380-381). expressed intent challenger issue, full-fledged 59 danger real. Nationality (INA) divest district jurisdiction over actions orders, 314. thought avenue raising Suspension Clause 305. (among provisions) 1252(a)(1) 1252(b)(9), 2241, distinguishes 308-314. INA, clearly unlike appeals 1252(a)(1), Cyr therefore, "noncriminal seeking [would] still presumably proceed review, restrictive modified Hobbs set forth 1252(a)(1)," sue statute. 335 O'CONNOR dissenting). lower opposite: entertained aliens' orders. Chmakov Blackman, 266 210, 214-215 (CA3 2001); Riley 310 1253, 1256 (CA10 2002); Liu 293 36, 38-41 (CA2 2002). allowing decisions, advantage precluding 305, escapes me. affording stare decisis effect. dissents 705-718 J.); 702-705 adhere views repeat colleagues. explain bind us. cast prevent overruling stronger holdings Hilton South Railways Comm'n, 197, 205 (1991). absolute, hesitate allow yield "unworkable" "badly reasoned." Holder Hall, 512 874, 936 (1994) (quoting Payne Tennessee, 501 808, 827 (1991) omitted)). "[W]e mechanically prohibit earlier determining statutes." Monell New York City Dept. Social Servs., 436 658, (1978). overturn excuse failing overrule ours wrong, realities legislative often readopting original upset. 62 untenable. qualification authorization, reference time" Just exhaust "traditional tools construction," Chevron Inc. Natural Resources Defense Inc., 467 837, 843, (1984), deferring agency's too adopted. 63 Application begins ends observation meant long-term unremovable certainly spoken clearer terms," 697, proves nothing. mention scenario detentions portions 1231. 708 confirms unmistakable terms: textually evident identified majority. 64 apart incredible strong effect—that disagrees—does name only. purported doubtful, lengthy strongly signaled far avoiding head on, treatment. 690-697; "fundamenta[l]" tenet avoidance] means"). suspect, Members understood much.6 assurance States] removed[,] it," rings hollow. Short amendment, error. 65 points passed mistake. legislatively uncorrectable. threat, foreseeable. conceded violate "certain narrow nonpunitive justification, harm-threatening mental illness, outweighs individual's protected interest physical restraint." 690 outer power. crafted operate boundaries set. lengths problematic 67 foregoing reasons, 1367(a)], action voluntarily dismissal tolled State SeeRust 190-191 (distinguishing classic versions cases); Hooper 155 648, 657 (1895) ("The elementary resorted to, save unconstitutionality"); Mossman Higginson, Dall. (1800) (reasoning "can, receive construction, constitution"); Ex parte Randolph, Cas. 242, 254 (No. 11,558) (CC Va. 1833) (Marshall, 1949 (1997); Black, Handbook Construction Interpretation Laws 113-114 (2d 1911). originated See,e. Chicago Morales, 527 41, 55, (1999) opinion); Kolender Lawson, 461 352, 358-359, (1983); Papachristou Jacksonville, 405 156 (1972). "If division person remainder circumstance affected thereby." Note 1101, 840 (Separability) (1932), bolsters Employing jurisdictional facts. sorts 62-63. "assurance [was] violation sustaining determinations deputy commissioner acts compensation denying finality conclusions valid depends." So here, reassure Conf. Rep. 108-10, 600 (2003) ("A indefinitely," referring toZadvydas); 108-724, pt. 5, allowed increased exponentially strike Secretary] countries back, except (footnote omitted)); 147 Cong. Rec. S11047 ("Indefinite extraordinary Zadvydas).

Category: 1