Document: 502 U.S. 314 112 S.Ct. 719 116 L.Ed.2d 823 IMMIGRATION AND NATURALIZATION SERVICE, Petitionerv.Joseph Patrick DOHERTY. No. 90-925. Argued Oct. 16, 1991. Decided Jan. 15, 1992. Syllabus Respondent Doherty, a citizen of both Ireland and the United Kingdom, was found guilty in absentia by Northern court of, inter alia, murder British officer Ireland. After petitioner Immigration Naturalization Service (INS) located him States began deportation proceedings against him, he applied for asylum under Nationality Act (Act), but withdrew that application claim withholding 1986, at which time conceded deportability and, pursuant to Act, designated as country be deported. The Judge, over INS' challenge designation, ordered Ireland, Board Appeals (BIA) affirmed. While an INS appeal Attorney General pending, Doherty moved reopen his on basis 1987 Irish Extradition constituted new evidence requiring reopening claims asylum. rejected Doherty's deported remanded motion BIA. BIA granted reopen, reversed, relying on, independent grounds (1) had not presented warranting reopening, (2) waived withdrawing them 1986. Court affirmed order denying held abused discretion reopen. Among other things, used incorrect legal standard overturning BIA's finding produced material that, v. Abudu, 485 94, 108 904, 99 90, once alien establishes prima facie case brings evidence, is without deny Held: judgment reversed. 908 F.2d 1108 (CA2 1990), THE CHIEF JUSTICE delivered opinion with respect Part I, concluding did abuse proceedings. There no statutory provision authority such motions derives solely from regulations promulgated General. Rios-Pineda, 471 444, 446, 105 2098, 2100, 85 452. applicable regulation, 8 CFR § 3.2, couched negative terms: It specifies shall unless it appears sought offered material, available, could have been discovered or former hearing, specifying conditions should granted. Thus, granting discretionary, Phinpathya, 464 183, 188, n. 6, 104 584, 588, 78 401, has "broad discretion" grant motions. supra, U.S., 449, 2102. Motions immigration are disfavored same reasons petitions rehearing trial newly evidence. When denial based failure prove relief introduce previously unavailable, proper review. 105, S.Ct., 911. regardless underlying alien's request relief, 99, 3, 908, thus, applies equally deportation. these principles leads conclusion either ground failed adduce satisfactorily explain previous withdrawal claims. Pp. 322-324. JUSTICE, joined Justice WHITE, BLACKMUN, O'CONNOR, concluded II stated General, well within decide neither nor change extradition law, qualified support reopening. known there always risk would denied, since authorized reject if determines prejudicial interests objected designation hearing selected He also determined rejection ultimate decision administrative process therefore cannot constitute justify Additionally, Act's implementation relevant new, treaty upon signed six months before law ordinarily does pertains rules proceeding ordered. Moreover, language 104-105, 911-912, interpreted negating 3.2's requirement unforeseeability, bear construction, particularly when Abudu sets out verbatim regulation uncommon require matter reasonably adduced. Nor fact disagrees discretion. simply creature retains final construing, deciding questions under, regulations. 324-327. KENNEDY, III secure tactical advantage first reasonable explanation failing pursue hearing. allows aliens plead alternative, nothing prevented bringing contested country. However, chose instead withdraw claims, even expressly questioned Judge. Nothing forbids adopting narrow interpretation 327-329. REHNQUIST, C.J., announced JJ., joined, II, III, J., joined. SCALIA, filed concurring part dissenting part, STEVENS SOUTER, THOMAS, took consideration case. Maureen E. Mahoney, Washington, D.C., petitioner. Mary Boresz Pike, New York City, respondent. BLACKMUN O'CONNOR join, KENNEDY joins. 1 Respondent, Joseph entered this illegally 1982. more than eight years concerning status States, question here whether refusing respondent allow respondent's earlier withdrawn. We conclude broad vested 2 native Kingdom. In May 1980, fellow members Provisional Republican Army ambushed car containing Army, killed Captain Herbert Richard Westmacott. tried Westmacott Before returned verdict, escaped maximum security prison where held; related charges, sentenced life imprisonment. 3 1982, surreptitiously alias. June 1983, (INS), thereupon him. 208 added Refugee 94 Stat. U.S.C. 1158.1 were suspended completion initiated 4 December 1984, District Judge Sprizzo, acting magistrate 18 3184, extraditable because crimes fell into political offenses exception between re Requested 599 F.Supp. 270, 272 (SDNY 1984). attempts attack collaterally rebuffed. 615 755 1985), aff'd, 786 491 1986).2 5 concluded, resumed. On September 12, 1253(a).3 conjunction unsuccessfully challenged would, 1253(a), "be States." its objection App. Pet. Cert. 158a. March 11, 1987, order, never deportee's improper "in absence clear conclusion." Id., 155a. 6 Government appealed determination 3.1(h)(iii) (1987).4 deport being reviewed implemented now reopened. 1988, Meese reversed Respondent's committed serious crime Kingdom any serve sentence harm States. 7 circumstance expected anticipate, result leave extradited feared persecution. Thornburgh who three Second Circuit denied Thornburgh's proceeding. divided vote order. Dept. Justice, INS, 1990). according Appeals, overturned standard. passing Meese's entitled erred determining, requested. Citing Court's 90 (1988), made mandatory deportation, addition, foreign policy concerns examining legislative history Congress intended play role determinations. congress eliminate cases. . ." F.2d, 1121. 9 certiorari, 498 ----, 111 950, 1039 (1991), placed much too limit grounds. First, reopening; second, 1986; third, properly involvement nonpolitical statutorily ineligible deportation,5 undeserving discretionary Because we second grounds, reverse need reach third relied 10 * This fifth last decade dealt These cases establish several propositions. proceeding, derive 452 (1985). deal here, 3.2 (1987), terms; requires certain circumstances specify granted: 11 "Reopening reconsideration. 12 ". available 13 thus 401 (1984), rehearing, 107-108, 913. especially true where, general matter, every delay works deportable wishes merely remain See 450, "at least" might reopen—failure sought, requirements satisfied, movant sought. 911-912. two 14 noted "regardless [for relief]." 909, 3.6 itself, after issued, operation regulations, brought well. Ibid.7 discussed therefore, 15 think inexorably 16 explained very statute designate authorizes oppose eventual "new fact" "it inconceivable anyone represented counsel know existed protect 66a. 1253(a) provides direct "if willing accept territory, discretion, concludes case, selection made.8 "fact," reasoning "[t]he itself 'new' If adverse sufficient, finality process." 67a. Government's successful opposition "new," "evidence." 17 decided Ireland's new. By issued And view General's insistence adduced "unforeseeable" supported "[n]either decisional law." 1115. But question, (1987) "shall seized our stating issue "reasonably apply initially" indeed "previously evidence," unforeseeability. sentence, think, quoted above. all adduced; see, e.g., Fed.Rule Civ.Proc. 60(b)(2) "newly due diligence move Rule 59(b). hold, considering foreseen anticipated proceeding.9 alien, discuss fully infra, allowed inconsistently alternative original thereby raise foreseeable time. 19 some way limited overturn decision. delegated statutes. construing them. Jong Ha Wang, 450 139, 140, 101 1027, 1029, 67 123 (1981) (per curiam). mere applying 20 found, obtain advantage. disagree Appeals' reason 1122. waiver functional equivalent 208.11 words, hearing.10 21 Precisely may qualify one form another, proceedings.11 contest deported.12 chose, however, those Judge.13 22 "incompatible adopted narrow, rather broad, construction governing course. initial "deliberate decision," submitted though inconsistent hold 23 Reversed. 24 THOMAS 25 whom SOUTER part. 26 I agree justified refusal so relief; similar rationale withholding-of-deportation claim. (Part below.) my wrong asserting procedural default II); decreeing unrelated merits claim, III). merit INS's argument withholding; detailed review factual record. IV.) 27 do premise permit discretionary. Ante, 323. Even limits. us present standards federal administration embodied what described "the 'common law' judicial agency action," Heckler Chaney, 470 821, 832, 1649, 1656, 84 714 courts commanded provisions Administrative Procedure (APA) "hold [it] unlawful set aside." 706(2). (Although procedures specified APA hearings (INA), see Marcello Bonds, 349 302, 75 757, L.Ed. 1107 (1955), do, Shaughnessy Pedreiro, 48, 591, 868 (1955).)1 28 Whether particular depends, course, scope tempting believe, does, extremely term "reopening" calls mind court—a rarely accorded grace. fact, nature includes, large extent, context common phenomenon called "remand further proceedings." Under system, sole means raising issues acquire relevance practical importance only virtue appeal. A remand purpose often denominated such. See, Matter Doural, & N Dec. 37 (BIA 1981). Permission "reopen" sense breadth today suggests. 29 mistakes relies statements 2102, (1985), involved substantive subject That here. Section 243(h) INA, amended, four enumerated exceptions: 30 "The return (other section 241(a)(4)(D) [8 1251(a)(4)(D) ] ) freedom threatened account race, religion, nationality, membership social group, opinion." 1253(h)(1) (emphasis added). 31 imperative accident. As recognized Cardoza-Fonseca, 480 421, 428-429, 107 1207, 1211-1212, 434 nondiscretionary duty imposed parallels States' nonrefoulement obligations Article 33.1 Nations Convention Relating Status Refugees, 189 U.N.T.S. 150, 176 (1954), reprinted U.S.T. 6259, 6276, T.I.A.S. 6577 (1968).2 "authorized" withhold circumstances, 1253(h) (1976 ed., Supp. presumed 1968, acceded Convention, "honored dictates" administering 243(h). 429. 1980 removed doubt substituting permissive current provision, "basically conforming 33 [of Convention]." Stevic, 467 407, 2489, 2496, 81 321 (1984). 32 power differs significantly broader administer forms suspension Our reflects this. identified reopen: "First, established Second, introduced or, initially, (1987). Third, (asylum, adjustment status, ), leap ahead, were, threshold ., determine they met, relief." 911-912 34 (prima evidence/reasonable explanation) examples respectively, ineligibility default. understanding deny, various nonmandatory includes "merits-deciding" eligible complied requirements. validates, view, asylum, remedy, 1158(a). Irrespective "political," sufficiently unsavory character 35 emphasized phrase above-quoted excerpt suggests, analogue relief. 106, 912 ("[Our prior decisions] served abuse-of-discretion type denial, refuses nature, surmounted requisite thresholds .") here—as cited Court, (1984) wish provide withholding. 36 puts forward bases rejecting none valid. A. asserted, reopening—a accept, ante, 327, 329—that "waived" how can be. begun filing service show cause why deported, clearly contemplated initially responded (and Kingdom's simultaneous efforts extradition) requesting 208.3(b) (1983), treated INA. favor, changed mind, application, concede deportability, 1253(a). (Doherty's motive, apparently, get himself quickly, Kingdom.) permitted (IJ), right precluded resubmission withdrawn application. No exists, however; prevents later reapplication Social Security benefits reapplication. 38 addition withdrawal, following exchange IJ Doherty: 39 "Q. just want sure won't and/or correct? 40 "A. correct. 41 voluntary departure? 42 43 you will making? 44 correct." 45 engaged questioning proposal country, proof deportability. context, commitment expressed above exchange, seems me, seek proposed allowed. waived, "alternate" destination, accepted refuse confirmed requested specification destination: 46 And, about alternate designation? What Eire doesn't him? 47 Your Honor, assured 48 All right. So, objection, then, Colonies alternate? 49 That's correct, Honor." 50 implicit counsel's concession accepted. find record waiver, accepted—which ultimately happened 51 suggests subtle, theory waiver: soon possible. "There respondent" making 328; "[r]espondent withdraw" ibid.; prevent context. To state expose frailty; follow. Unless rule says must object named capacity opportunity presents apparent loss rule—viz., request" "prior exclusion proceeding." Unfortunately, Far establishing "raise-it-as-soon-as-possible" implication disclaims it.3 "reasonable explanation" exist, surely arbitrary say qualify: "I agreed abstain doing acceptance Ireland; abstention; until then absolutely importance." explain," words sham snare. sure, did, said, make decision" alternate. unworthy deliberate decisions; waivers slapped penalties, discerned import action taken, consequence prescribed law. B 52 Another gave reopening—and plurality accepts, 324, 326 comply regulatory identify facts proved reopened hearing," 3.8(a) "evidence 3.2. satisfied burden subsequently believed 1108, 1115-1116 53 asserted satisfy "material" ruled November 1988. already returned. alteration another matter. Of course normally fac[t] offered." technically far, given expansive meaning sense, obviously necessary remands. Suppose, example, primary destination. 54 able [that] available" altered disposition. concedes, moreover, laws reopening—yet difficult describe 55 argued, repeats reopening," "[i]f outcome sometimes great difficulty that. reversing judgment, frequently remands necessary. C 56 oral contention briefs: actually required during pain losing it. belated discovery point renders somewhat suspect, cite specific based. Presumably, rests 242.17(e) (1986), "[a]n subsection 242.17(c), countries alternate, sent declines one, fails timely notice acceptance.4 continues: advised [INA] temporary special inquiry [i.e., Judge]. ."5 specifications objects (Doherty because, having received assurances Government, concern ever take effect protract proceeding.) mean asserts (if mind): destination substituted For longer "withholding officer" 242.17(c) for, hence "[an] section." 57 reading causes produce acquiescence produces litigation: litigant live disposition acquiesced in, destinations. An wishing entail something more—wishing normal "object now, never" never"—can unusual arrangement greater clarity contains. am prepared find, mentioned put stage litigation, explicitly attributed source, interprets mean. Indeed, first-ever, unforewarned adoption automatic cutoff conferred right, lawful. Cf. NLRB Bell Aerospace Co., 416 267, 294-295, 1757, 1771-1772, 134 (1974). whatever, surprise occur. 58 theories II), I). so, act one. True—but outset, (i.e., discretion) suggest. Surely ("remand" better word) substitutes IJ, all. also, "abuse discretion," positively contrary least assurance indication practice designation. beyond permissible foreclosure suggested own reconsideration," reads part: 59 "[N]or affording therefor afforded arisen subsequent hearing." 60 takes capricious coloration compares considerable indulgence defaults proceeding—and recognizes precisely position unable During come supporting deporting appeal, action, (remand) production available. Although formally motion, effectively receiving proffered Had procedurally defaulted proceedings, securing level arguing, prevailed (after forgiving default), (with observance procedures), "arbitrary" precise content, enough cover IV 61 alleged defaults, nonetheless upheld reaching conclusion, assumed arguendo (as I) eligibility 243(h)(1). His "serious [Doherty] crime," 1253(h)(2)(C), "assisted, otherwise participated" persecution "on opinion," 1253(h)(2)(A).6 62 determinations 1116-1117. statement "leaping ahead" event "not relief" 1117 (citing 912). discussion makes clear, "leap-over" exercise favor 332-333. sort recognition determination, existing record, principle (indeed, prima-facie-case example determination), me wrong. 63 evidentiary types present—for "political"—"raise formidable adequately resolved record." 1117. usually true, always; ordinary civil paper connection 56, uncontroverted showing 104, 911, despite fact-intensive involved. 64 Concluding per se vacate portion orders entered, consider developed taken together matters notice, provided degree admitted committing "nonpolitical." 1158(a) provides, pertinent "[T]he procedure physically refugee defined 1101(a)(42)(A) "any person outside person's nationality unwilling well-founded fear opinion. confined arrest twice habeas corpus Meese, 808 938 1986); Thornburgh, 943 204 1991). Title directed promptly Initially, reconsideration affidavit Associate refused event, conclusion. 134a-142a. Withholding "(1) "(2) Paragraph that— "(A) ordered, incited, assisted, participated opinion; [or] "(C) arrival institution considered (1988 ed. Supp.II). (1983). "respondent proceeding," 111, 915, SCALIA's post, 730. At "oppose[d] Republic interest States" "an deportation." 34. post 9, suggest Given unrealistic assume unaware possibility ineffective notwithstanding receive certainly events nominally respectively duplicative offer most cases, adequate "application face requests dispositive request." 324. ample abusing situation explained. home Ghana England ineffective. 97, 908. presenting additional bring 157a. asked counsel: correct?" replied: "That again: "In making?" response again affirmative. 32. Pedreiro remains although mode case—an injunctive district court—has eliminated 106 1105a, "replaced appeals Agosto 436 748, 752-753, 98 2081, 2085, 677 (1978). 703 ("The inadequacy thereof, including actions declaratory judgments writs prohibitory injunction corpus, competent jurisdiction"). provides: "No Contracting State expel ('refouler ') manner whatsoever frontiers territories group signatory 1954 provisions, 33.1, Protocol 31, 1967, [1968] 6223, 6225, 6577. seeks enlist proposition that—despite implication—the 327-328, 10, quoting request," 3. misses whole footnote, automatically reopens claim; stringent asylum; single rigorous requirement—the 208.11—will normally, point: request. 802 1096, 1102 (CA9 1986). Once latter error piggy-backed became faithfully followed provision: "IT IS ORDERED charge contained Order Show Cause. FURTHER advises territory advise Colonies." entire notify finally instance 243(a) afford furnish acceptance, ten days submit application." (1986). 243(h)(2) obligation that: 1253(h)(2)(A), (C).

Category: 0