Document: 472 U.S. 846 105 S.Ct. 2992 86 L.Ed.2d 664 Marie Lucie JEAN, et al., Petitionersv.Alan NELSON, Commissioner, Immigration and Naturalization Service, al. No. 84-5240. Argued March 25, 1985. Decided June 26, Syllabus Petitioner named representatives of a class undocumented unadmitted aliens from Haiti filed suit in Federal District Court alleging that the change by Service (INS) policy general parole for seeking admission to policy, based on no statute or regulation, detention without who could not present prima facie case was unlawful because it did comply with notice-and-comment rulemaking procedures Administrative Procedure Act (APA). It further alleged restrictive as executed INS officers field, violated equal protection guarantee Fifth Amendment discriminated against petitioners basis race national origin. The held APA claim, but concluded they had failed prove discrimination court then enjoined future use stayed injunction permit promulgate new compliance APA. promptly promulgated rule prohibits consideration Ultimately, Appeals claim moot Government longer detaining any members under invalidated apply parole. remanded review officials' discretion nondiscriminatory rule. Held: Because current statutes regulations provide consideration, there need address constitutional issue, properly Court. On remand, must consider (1) whether officials exercised their make individualized determinations, (2) this regard Such remand protects very conduct fear, fact results regulation statute, rather than holding, is necessary consequence obligation all federal courts avoid adjudication except where necessary. Pp. 2923-2931. 727 F.2d 957 (CA11 1984) affirmed. Ira Jay Kurzban, Miami, Fla., petitioners. Sol. Gen. Rex E. Lee, Washington, D.C., respondents. Justice REHNQUIST delivered opinion 1 Petitioners, Haiti, sued respondent Commissioner (INS). They alleged, inter alia, been denied See 711 1455 1983) (panel opinion) (Jean I). en banc Eleventh Circuit such concerning would violate United States Constitution Government's plenary authority control Nation's borders. That petitioners' treatment regulations, which authorize origin determining an excludable alien should be paroled. II). We granted certiorari 469 1071, 563, 83 504. conclude have reached decided question grounds, we affirm its judgment remanding 2 Petitioners arrived country sometime after May 1981, represent part recent influx attempted migrate Caribbean basin south Florida. Section 235(b) Nationality Act, 66 Stat. 199, 8 U.S.C. § 1225(b), provides "[e]very . may appear examining immigration officer at port arrival clearly beyond doubt entitled land shall detained inquiry conducted special officer." 212(d)(5)(A) 188, amended, 1182(d)(5)(A), authorizes Attorney General "in his discretion" into applying "under conditions he prescribe emergent reasons deemed strictly public interest." regarded alien, returned custody when purposes served. 3 For almost 30 years before followed arriving our shores country. In late 1970's early 1980's, however, large numbers Florida, mostly Cuba. Concerned about aliens, first half 1981 ordered detain immigrants admission. were remain pending decision exclusion. This regulation. By July 31, fully operation 4 incarcerated parole, writ habeas corpus 28 2241 declaratory injunctive relief. amended complaint set forth two claims pertinent here. First, INS's unlawfully effected observance rule-making (APA), 5 553. also Specifically, impermissibly black Haitian. certified "all Haitian Southern Florida 20, are entry presently exclusion proceedings whom order has entered. ." Louis v. Nelson, 544 F.Supp. 1004, 1005 (SD Fla.1982). After discovery 6-week bench trial preponderance evidence denial 973 (1982); see id., 1004. 6 accordance procedures, "null void," prior restored "full force effect," F.Supp., 1006. release members, 1,700 number. ibid. Additionally, enforcing until complied process, §§ 552, 7 Under Court's order, retained security risk likely abscond, serious mental physical ailments. court's subjected paroled certain conditions, law attendance required proceedings. jurisdiction over member whose might revoked violating Although released forthwith, imposed 30-day stay upon enjoining incarceration purpose promptly. CFR 212.5 (1985); 47 Fed.Reg. 30044 (1982), 46494 (1982). Both respondents agree requires even-handed decision. Except initial stay, ended unwritten put place 1981. Some 100 400 currently detention; most these terms some judgment.1 certain, being invalidated. Jean II, F.2d, 962. 9 entered judgment, appealed cross-appealed claim. A panel affirmed although somewhat different rationale I, 1455. went decide issue well, holding Amendment's applied finding invidious erroneous. ordered, continued discriminatory enforcement policies, relief "to ensure regardless nationality origin, accorded treatment." Id., 1509-1510. 10 rehearing banc, thereby vacating opinion. 11th Cir.Ct.Rule 26(k). hearing argument, stricken policy.2 All either postjudgment arrivals adopted 29, 1982. supra, turned According grant discretionary 1182(d)(5)(A) permitted Executive discriminate making decisions. 11 II rejected (1985), facially neutral admit require decisions made invalid Court, non-discriminatory 1982 effect. stated: 12 "The district therefore remaining detainees thus high-level executive branch (INA) between classes lower-level abused discriminating violation instructions superiors." 963. 13 stated well statements President General, individually, Thus broad manner. 978-979. 14 noted power refuse delegated Congress Code, e.g., 1227(a), quite broad. subject only deferential abuse-of-discretion standard. "immigration deny if can advance 'facially legitimate bona fide reason' doing so." 977, citing Kleindienst Mandel, 408 753, 770, 92 2576, 2578, 33 683 (1972). 15 resolve aptly petitioners: 16 "This does implicate Congress, President, General. Rather, challenges low-level politically unresponsive government act manner contrary directions both provided enforcement." Brief 37. 17 urge invidiously them, notwithstanding statutes, agents will renew campaign those detained. contend adequate remedy "declaratory relief" Amendment. limited statutory contend, insufficient. eager us reach issue. Respondents wish hold component bearing alien's request 18 "Prior reaching questions, nonconstitutional grounds decision." Gulf Oil Co. Bernard, 452 89, 99, 101 2193, 2199, 68 693 (1981); Mobile Bolden, 446 55, 60, 1490, 1495, 64 (1980); Kolender Lawson, 461 352, 361, n. 10, 103 1855, 1860, 75 903 (1983), Ashwander TVA, 297 288, 347, 56 466, 483, 80 L.Ed. 688 (1936) (Brandeis, J., concurring). "fundamental judicial restraint." Three Affiliated Tribes Berthold Reservation Wold Engineering, 467 138, 104 2267, 81 113 (1984). Of course, issues unnecessarily press construction point disingenuous evasion" question. Locke, 471 84, 96, 1785, 1793, 85 (1985). As stressed Spector Motor McLaughlin, 323 101, 105, 65 152, 154, 89 (1944), "[i]f one doctrine more deeply rooted other process adjudication, ought pass questions constitutionality unless unavoidable." Gerlach Livestock Co., 339 725, 737, 70 955, 961, 94 1231 (1950); Larson Valente, 456 228, 257, 102 1673, 1690, 72 (1982) (STEVENS, 19 Had rule, addressed involving first, instead discussion Constitution. seek obtain virtue argument—there 20 incoming through 1101 seq. "who [upon States] [an INS] land" examination judge INS. 1226(a); 236.1 21 "[t]he temporarily interest States." 22 Directors case. Title lengthy list criteria bear concede while exceedingly broad, extend considerations Respondents' position best seen colloquy oral argument: 23 "Question: You arguing constitutionally you inhibited people whatever ground seems appropriate. But I understand your maintaining do constitute kind people, field own what say do." 24 "Solicitor General: That's correct." Tr. Oral Arg. 28-29. 18-19; 1182(d)(5)(A); cf., Statement Refugee Policy (July 1981). Weekly Comp. Pres.Doc. 829 (1981). dissenting colleagues out, post, ----, nationality-based number regulations. These noticeably absent consistent origin.3 25 Accordingly, insofar determination observing limit detention. consider: determinations 26 protest, commence revocation officials, like others bound provisions Constitution, just surely latter protected Appeals' fear. 27 petitioner's Affirmed. 29 POWELL took MARSHALL, BRENNAN joins, dissenting. 31 various facilities disposition asylum claims. invoke guarantees Due Process Clause challenge failure them today refuses question, invoking well-accepted proposition avoided whenever exist proper quarrel proposition. Its application case, problematic; pressing regulatory "the evasion," thrusts itself domain political branches. Purporting exercise restraint, creates out whole cloth constraints General's country, flagrantly maxim "amendment substituted construction," Yu Cong Eng Trinidad, 271 500, 518, 46 619, 623, 1059 (1926) (Taft, C.J.). my mind, principled way presented Turning right free respectfully dissent. 32 * rests entirely premise during course litigation preclude considering Ante, 852-853, 855. show disparate seek. Thus, sees independent invokes concurring), deciding If correct, sound. not, remainder simply collapses house cards. support conclusion, points arguments parties' briefs, turn cite nothing relevance. rely surprising, themselves, administrative practices governing indicates Executive's national-origin distinctions.1 34 temporary states States" (emphasis added). Pursuant 1958, Directors: 35 director charge section 212(d)(5) applicant deem appropriate." 142 (1958), (1959) 36 quoted portion remained unchanged 1982, time 37 found 1954 border States. 973, 980, 18, 990 Fla.1982); 3. During period, exception, "generally employed risks abscond," Leng Ma Barber, 357 185, 190, 78 1072, 1075, 1246 (1958). 990. 38 acknowledges, became far ante, 849. below policy. 1006 (final judgment). 553, published notice proposed allowed interested persons comment. 997. result turns, "lengthy parole." 39 track standards granting parole: "emergent reasons" "reasons medical appropriate generally justified 'emergent reasons.' " 212.5(a)(1) define five groups come within category exception 'strictly interest', neither nor absconding." 212.5(a)(2). four pregnant women, juveniles, close relatives States, witnesses official 212.5(a)(2)(i)-(iv). fifth catchall: "aliens determined director." 212.5(a)(2)(v).2 40 Given catchall provision, tautologically "strictly interest" interest"; list" relies so heavily empty set.3 Certainly exclusive guide "public impermissible criteria. Moreover, terms, prohibit Judge Tjoflat separate below: 41 comprehensive merely sets few specific categories absence countervailing risks. leaves weighing regarding categories, decisions, purely director. minimal directive enough infer certainty never wants directors, nationality." 957, 985-986 (concurring part) B 42 Nor prohibition pronouncements INS, APA, possible sources believes Directors. potential constraint, vests full "discretion" There little least distinctions permissible matters extremely K. Davis, Law Treatise 8:10 (2d ed. 1979); C. Gordon & H. Rosenfield, 8.14 example, Hintopoulos Shaughnessy, 353 72, 77 618, 652 (1957), that, specify reasonable factors choosing. 78, S.Ct., 621. 43 respect vested similar acting pursuant specifically See, 101.1 (1985) (presumption lawful groups); 212.1 (documentary requirements nonimmigrants particular nationalities); 231 (arrival-departure manifests passengers countries); 242.2(e) (nationals countries privilege communication diplomatic officers); 252.1 (relaxation inspection British Canadian crewmen). indicate necessarily inconsistent congressional delegation Executive. interpretation is, deference. Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 837, 844-845, 2778, 2782-2783, 694 44 My conclusion room Appeals. brief Assistant McGrath explicitly precluded drawing distinctions, breadth General." En Banc Alan Nelson 82-5772 1983), p. 18. proscribe differential added: 45 "Congress knows how so. express prohibition, presumed encompasses distinctions." 11. constraint identified end inquiry, narrowed vest interpretive rules, staff instructions, clear distinctions. throughout litigation, pointed absolutely chose narrow Operations Instructions Examinations Handbook, guidance cannot taken account final comes APA's requirement action arbitrary, capricious, abuse discretion, 706(2)(A). Citizens Preserve Overton Park Volpe, 401 402, 411, 91 814, 821, 136 (1971); Abbott Laboratories Gardner, 387 136, 140-141, 87 1507, 1510-1511, 681 (1967). better worse, classifications played important role merit argument Director take ---- (discussing discretion). summary, aside constraints, draws anything themselves background C 48 view representations Solicitor purported agreement parties.4 point, states: "Respondents origin." reliance agency misplaced. 49 An agency's empowered administer deference courts, intent Congress. U.S., 844, 2782. Similarly, "controlling weight plainly erroneous regulation." Bowles Seminole Rock Sand 325 410, 414, 1215, 1217, 1700 (1945); Ford Credit Milhollin, 444 555, 566, 790, 797, 63 Larionoff, 431 864, 872, 97 2150, 2155, 53 (1977). presumptions apply, appellate counsel. Investment Company Institute Camp, 617, 1091, 367 (1971): counsel responsibility elaborating commands. possess expertise enlighten rationalize search meaning Congress." 628, 1097; Vehicle Mfrs. Assn. State Farm Mutual Automobile Insurance 463 50, 2856, 2870, 443 (1983); Burlington Truck Lines 371 156, 168-169, 239, 245-246, 207 (1962). same counsel's 50 supported citation authoritative statement effect 18-19. Indeed, "except too-late formulations, apparently coming office," 422, 826 (opinion Black, J.), directed relevant indication practice distinctions.5 ----. contention unsupported assertion litigant; owes all.6 51 - read does. main thrust 7-10, 30, 37, 38. Unless exclusive, plausible 212.5(a) intended exclusive. 52 More importantly, judgments precedents binding lower courts. here, left stipulation parties. Young 315 259, 62 510, 511, 832 (1942); Sibron New York, 392 40, 59, 88 1889, 1900, 917 (1968). implications confines litigation.7 fact, casts validity numerous policies. already mentioned, many face limiting presumably affect scope areas explain language underlying practice, limits well. well-established threatens constrain severely ability problems. indeed costly issues. 54 Having shown untenable, case: admissibility? Shaughnessy ex rel. Mezei, 345 206, 73 625, 956 (1953), compels "cannot rights amendment, even challenging discretion." 970.8 Before takes position, "Mezei directly point." 40. dicta Mezei suggest enjoy protections, Clause. Knauff 338 537, 544, 309, 313, 317 Kwong Hai Chew Colding, 344 590, 601, 472, 479, 576 (1953). dicta, withstand logic principle, incorporated fabric jurisprudence. stripped stands inapposite now 55 Ignatz York 1950 excluded inspector Passport Act. Pending admission, Ellis Island. months detention, permanent exclusion, "basis information confidential nature, disclosure prejudicial reasons." 208, 627. told given opportunity own. began year-long willing accept him. attempts find home failed, Department's efforts behalf. result, "sat Island shut him unwilling in." 209, 57 Seeking corpus, argued refusal inform due process. 66, (SDNY 1951). disclose gave option camera. refused altogether, Mezei's conditional bond. divided Second but, 5-4 decision, reversed. 58 distinguished legally illegally, who, attempt enter. former group, reasoned, expelled "only conforming traditional fairness encompassed law." 212, 629. afford protections group. Citing 'Whatever procedure authorized concerned.' 629 (quoting 313). 59 Knauff, 4-3 married citizen sought enter naturalized. Upon border, she Eventually, hearing, permanently undisclosed information. stating "it province court, expressly law, exclude alien." 543, 312. Even though procedural related excludable, distinguish situations. Instead, point. 60 Justices Frankfurter, Douglas, Jackson dissented Mezei. Focusing Island, asked: "Because entry, follow all?" 226, 636 (Jackson, joined dissenting). He enforced "which meet test 227, 636. Black "individual liberty too highly prized allow imprison kept secret courts." 218, 632. (Black, thought "Mezei's imprisonment violate[d] 217, 631. 61 "[w]hatever concerned," lies heart suggests Further month resident "excluded" return following 5-month trip abroad crewman American merchant ship. declined which, stated, "relates entrant deal heard." 596, 477. unlike entrant, "is person Amendment." Ibid. Chew's hybrid status—that attempting States—the said: "While ultimate alteration voyage undertaken foreign ports, deprived His status capriciously him." 479. view, "person" Also characterization first-time entrant—rather alien—was equivalent taking away coverage. ominous nature Chew, becomes realizes outside borders, physically territory exercises coercive power. modern-day Islands; individuals literally live midst, establishes Kaplan Tod, 267 69 585 (1925). "It maxim, disregarded, expressions, every opinion, connection expressions used. go respected, subsequent Cohens Virginia, Wheat, 264, 399, 257 (1821) (Marshall, raised concerns infra, violated. notion 'excludable' Amendment," 600, 28-29, dictum, principle accord it. standard, dictum deserves all. Our makes do, protections. criminally prosecuted criminal defendants. Wong Wing 163 140 (1896), albeit "forbid [our] borders," punish "a establish guilt accused." 237, 980. universally respected acknowledged Government. Henry, 604 908, 912-913 (CA5 Casimiro-Benitez, 533 1121 (CA9), cert. denied, 429 926, 329, 295 (1976); Opposition 20-21. Surely defy precondition applicability allegation committed crime. conferring society's norms. 67 Second, Russian Volunteer Fleet 282 481, 229, 473 (1931), corporation "duly organized under, of, Laws Russia," 487, 230, certainly "within Nonetheless, broadly "[a]s friends embraced Amendment, said property confiscation here citizens confiscated country." 491-492, 232 Knauff-Chew-Mezei trilogy, facility irrational maintain deprivations "property" "life" "liberty." distinction rightfully Third, context, defies rationality. goals justify stop feeding aliens. argue scarce resources spent hiring additional patrol borders providing food detainees. condone mass starvation. dissent Mezei: "Does mean effectuated means happen seem authorities? effectuate alien's] eject bodily sea adrift rowboat. Would measures condemned judicially deprivation life law?" 226-227, Only perverse reading bring basic confinement. 71 Fourth, limitations territorial fly long-held recently reaffirmed commitment Constitution's sovereignty. "These universal application, jurisdiction, differences race, color, Yick Wo Hopkins, 118 356, 369, 1064, 1070, 220 (1886). Fourteenth prescribes "[n]o deprive life, liberty, law; laws." Plyler Doe, 457 202, 2382, 786 applies laws, 'person' ordinary sense term." 210, 2391; Mathews Diaz, 426 67, 77, 96 1883, 1890, 478 (1976). emphasis coverage overrule legal fiction undergirding —that freed slaves "people Scott Sandford, How. 393, 404, 691 (1857). Therefore, rationally position. pure compel rejection sweeping articulated dicta. To extent relied all, done area Landon Plasencia, 459 21, 32, 321, 74 766, 2583, protecting sovereignty strongest individual entitlement compelling. characterize branches wholly unbridled. "[o]ur cases reflect acceptance regulate aliens." Fiallo Bell, 430 787, 793, 5, 1473, 1478, (1977).9 Regardless territory. coextensive citizens. But, "[g]ranting vary circumstances," obliged determine "pass back buck assertedly all-powerful unimpeachable Hart, Power Limit Jurisdiction Courts: Exercise Dialectic, Harv.L.Rev. 1362, 1394 (1953) ). concern stake, invoked argues, maintains compelled actual holding. seizes phrase Mezei—that "nullifies proceeding." 216, untenable weave anomalous facts obvious—and controlling—difference circumstances, pernicious effects designed protect against. presence threat security, flowing resulting Activities espionage sabotage accomplish objectives quickly; steal sensitive materials blow up strategic buildings. idiosyncratic coextensive. 76 contrast, reason still yet performed duty evaluate applications believe "nullify purpose" way. matter tourists, students, short-term visitors want midst. Whatever compromised actually admitting similarly paroling admissibility. Here, evaluated yardstick. ways. One captured "[I]f correct give refuge admittance follows undesirable chances since less enough, attain amounts residence nation ever 52-139, O.T. 1952, 19. 79 Through gained substantive excluded. gain rights. Their terminated admissibility 1074; 257; 2.54, 2-374. Whereas "foothold States," indefinitely. incentives look disappeared wife Buffalo, N.Y. 631 present. substance procedure, sought—namely, know upon—had willingness defer midst Cold War. Boyd, 351 345, 919, 1242 (1956), upheld deportation proceeding. recognized proceeding unavailable nonresident 359, 927, nonetheless dismiss 358-359, 927. so, "no difficulty." 357, 21. Jay, viewed stake. 82 Finally, requests applicable articulating justification conduct. (1886), reviewed Wo, prosecute violators ordinance illegal circumstances laundry consent board supervisors. Yet selectively Chinese-Americans. Finding "applied administered evil eye unequal hand, practically unjust discriminations reversed convictions ordinance. 373-374, 1072-1073. recently, Mt. Healthy City School Board Education Doyle, 274, 568, (1977), employee "could discharged whatever, rehire him, [could] reinstatement First freedoms." 283-284, 574 (citation omitted); Heckler Chaney, 470 838, 1649, 84 714 license engage discrimination. D precise contours rights, clarify scheme, enjoys wide strong showed refusing Haitians slow down flow onto Haitians, deterrent Then, sufficiently valid goal reducing scrutiny. Another governmental reduce asylum. challenged serves goal, arguably upheld, underinclusive. true sometimes quotas reference nationality, (let alone race) immigration. Cubans relatively imply dealing feed Haitians. general, stronger lie Cf. Hampton Mow Sun Wong, 88, 116, 1895, 1911, 495 (1976) ("Due agency's] impose [a] agency"). When central recognize individuality acted belief (or Negroes matter) commit crimes disruptive community paroled, muster. III whether, admissibility, closely concerns. not. reverse disposes analysis finds record exactly original makeup remand. 42; 962 (1984); Order Mandate, 81-1260, 1, Fla. 8, 1984); Record, Vol. 17, pp. 4014, 4026, 4035. issues, none germane discuss today. dissent's always parties, including wrote enforces below, manner, think arrives (1942), (1971), faint resemblance one. confessed error, wrong affirmance conviction Harrison Anti-Narcotics importance adopt ourselves merits 258-259, 511. Camp defend banking Comptroller, apparent conflict statutes. gloss placed appeal; Comptroller offered pre-litigation post hoc cure involves rationalizations action. Unlike agreed parties stance defense precipitated litigation. detracts argument. complain errs failing arguments, pertain prosecution 212.5(a)(3) sure, 212.5(a)(2) determines "present[s] condition, prerequisite threshold discretion. aid defining appears share misconception somehow changed "sought codify existing practices." mere "post action," 3, untenable. argues At trial, opposite, namely, "nationality factor leads 47, 1858. 4, flatly trial; strategy. precisely sort rationalization weight. 23, (1983). witness, Associate Guiliani, "if discriminatorily, policies 49, 2343. meant "discrimination," "policies." referring theory. supra. "inconsistencies subordinates carrying out," guidelines 981, Giuliani's testimony contradicted Doris Meissner. 1455, 1471 1983). unsupported, uncredited, assertions witness insufficient existence practice. Not surprisingly, direct attention testimony. treated differently sheds light addition, cites President's (17 Pres. Doc. (1981)). Nothing squarely odds Tenth Rodriguez-Fernandez Wilkinson, 654 1382 (CA10 974-975. suggested Augustin Sava, 735 (CA2 ("it surrounds jeopardize freedom"); Yiu Sing Chun 708 869, 877 (a refugee's "interest protection"). 1950's, criticized academic commentators. 1392-1396 (describing behind patently preposterous proposition"); 7.15, 479-482 (1958); 11:5, 358 1979) ("The human heard charges denies widely considered shocking rendered"); Martin, Treatment Aliens, U.Pitt.L.Rev. 165, 176 (1983) scandalous doctrine, deserving distinguished, limited, ignored"); Schuck, Transformation Law, Colum.L.Rev. (1984) ("[among] deplorable toward recorded annals Supreme Court"); Developments Law—Immigration Rights 1286, 1322-1324 Note, Constitutional Limits Exclude

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