Document: 128 S. Ct. 2307 (2008) Samson Taiwo DADA, Petitioner, v. Michael B. MUKASEY, Attorney General. No. 06-1181. Supreme Court of United States. Argued January 7, 2008. Decided June 16, *2310 Scott D. Makar, for petitioner. G. Eric Brunstad, Jr., respondent. Paul Clement, Solicitor General, Counsel Record, Department Justice, Washington, D.C., Seth P. Waxman, Rachel Z. Stutz, Wilmer Cutler Pickering Hale and Dorr LLP, DC, Raed Gonzalez, Quan, Burdette & Perez, P.C., Houston, TX, Christopher J. Meade, Anne K. Small, Eloise Pasachoff, Jodie Morse, New York, NY, Megan Barbero, Sydenham Alexander III, Pickering, Boston, MA, Jeffrey Bucholtz, Acting Assistant Edwin Kneedler, Deputy Thomas H. Dupree, Toby Heytens, to the Donald E. Keener, Quynh Bain, Justice KENNEDY delivered opinion Court. We decide in this case whether an alien who has requested been granted voluntary departure from States, a form discretionary relief that avoids certain statutory penalties, must adhere election depart within time prescribed, even if doing so causes forgo ruling on pending, unresolved motion reopen removal proceedings. The turns upon interaction relevant provisions Illegal Immigration Reform Immigrant Responsibility Act 1996, 110 Stat. 3009-546 (IIRIRA or Act). provides every ordered removed States right file one his her See 8 U.S.C. § 1229a(c)(7) (2000 ed., Supp. V). statute also provides, however, alien's request is after he she found removable, required period prescribed by immigration officials, which cannot exceed 60 days. 1229c(b)(2) ed.). Failure renders ineligible forms relief, including adjustment status, 10 years. 1229c(d)(1) Pursuant regulation, effect withdrawing reopen. CFR 1003.2(d) (2007). *2311 Without some means, consistent with Act, reconcile two commands  directing other termination departs seeks reopening poor choices: can remain ensure remains while incurring penalties overstaying date; avoid prompt but abandon issue Congress intended be qualified process. alien, petitioner here, urges filing tolls pending motion's disposition. reject interpretation because it would reconfigure scheme manner inconsistent design. do not have authority interpret as suggests. Still, conflict between provision requiring no later than days untenable these are only choices available alien. Absent valid regulation resolving dilemma different way, we conclude permitted opportunity withdraw departure, provided made before expires. Petitioner attempted avail himself below. Appeals Fifth Circuit did disturb Board Appeals' (BIA Board) denial petitioner's election. now reverse its decision remand case. I Dada, native citizen Nigeria, came April 1998 temporary nonimmigrant visa. He overstayed it. In 1999, alleges, married American citizen. Petitioner's wife filed I-130 Petition Alien Relative behalf. necessary documentary evidence was provided, petition denied February 2003. 2004, Homeland Security (DHS) charged being removable under 237(a)(1)(B) Nationality (INA), 66 201, amended, 1227(a)(1)(B) V), then second petition. Judge (IJ) continuance adjudication newly noted those petitions take average about three years IJ 1229c(b) BIA affirmed November 4, 2005, without written opinion. It 30 suffer civil fine less $1,000 more $5,000 ineligibility §§ 240A, 240B, 245, 248, 249 INA App. Pet. Cert. 5-6. Two expiration 30-day period, December 2, sought departure. At same proceedings contended recited new material demonstrating bona fide marriage should continued until resolved. *2312 On 8, 2006, months expired, ground had period. Under 240B(d) INA, 1229c(d) ed. reasoned, fails timely fashion statutorily barred applying receiving status. 3-4. address affirmed. Dada Gonzales, 207 Fed. Appx. 425 (2006) (per curiam). Relying Banda-Ortiz 445 F.3d 387 (2006), court held BIA's reading applicable statutes rendering reasonable. joined First Fourth Circuits concluding there automatic tolling Chedad 497 57 (C.A.1 2007); Dekoladenu 459 500 (C.A.4 2006). Four Courts reached opposite conclusion. See, e.g., Kanivets 424 330 (C.A.3 2005); Sidikhouya 407 950 (C.A.8 Azarte Ashcroft, 394 1278 (C.A.9 Ugokwe Atty. Gen., 453 1325 (C.A.11 certiorari, see Keisler, 551 U.S. ___, 36, 168 L. Ed. 2d 805 (2007), resolve disagreement among Appeals. After oral argument supplemental briefing, 552 1116, 169 (2008), may Also argument, 10, 2008, application sham, contracted solely obtain benefits. II Resolution questions presented schemes proceedings; rules governing A Voluntary allows favored aliens either conclusion deportable leave country willingly. Between 1927 over 42 million were departure; almost 13 departures occurred 1996 2005 alone. Dept. Security, Aliens Expelled: Fiscal Years 1892 Table 38 (2005), online at http://www.dhs.gov/ ximgtn/statistics/ publications/YrBk05En.shtm (all Internet materials visited 13, Clerk Court's file). "originally developed administrative officers, absence specific mandate statute." 6 C. Gordon, Mailman, Yale-Loehr, Law Procedure 74.02[1], p. 74-15 (rev. ed.2007) (hereinafter Gordon). practice first codified Registration 1940, 20, 54 671. amended 19 Feb. 5, 1917, 39 889, provide "deportable any law proved good moral character preceding *2313 five years" General "depart choice own expense, lieu deportation." 20(c), 672. perhaps response criticism officials expressed frustration "permitted continue their illegal presence months, years," Letter Benjamin Habberton, Commissioner Naturalization, Executive Director President's Commission reprinted Hearings House Representatives Committee Judiciary, 82d Cong., Sess., 1954 (Comm. Print 1952), curtailed during pertinent proceedings, provides: "The permit voluntarily expense if, proceeding section 1229a title, judge enters order granting finds "(A) physically present least year immediately date notice appear served 1229(a) title; "(B) is, been, person 5 "(C) 1227(a)(2)(A)(iii) 1227(a)(4) "(D) established clear convincing means intends so." 1229c(b)(1). 1229c(a)(1) ("The subsection" subject prior completion need meet requirements 1229c(b)(1) removability conceded). When case, 1229c(b)(2). receive up 120 concedes requests 1229c(a)(2)(A). Appropriate authorities extend maximum instance. event 1229c(a) departures, respectively. 1240.26(f) (2007) ("Authority specified initially jurisdiction district director, Associate Detention Removal, Office Juvenile Affairs .... total time, extension, set forth 240B Act"). *2314 typically does begin run appeals concluded. 1101(47)(B) ... shall become final earlier (i) determination affirming such order; (ii) seek review Appeals"); (Attorney proceedings); 1003.6(a) ("[T]he appeal taken executed allowed "). addition Federal they stay consideration merits. Thapa 460 323, 329-332 (C.A.2 2006); Obale 151, 155-157 But Ngarurih 371 182, 194 2004). This resolution another day. current structure, Government agree quid pro quo. From Government's standpoint, agreement expedites process deportation procuring documents detaining deportation. eliminates costs burdens associated litigation With apparent purpose assuring attains benefits seeks, imposes limits supra, 2313, prohibits judicial decisions, 1229c(f) 1252(a)(2)(B)(i). Benefits evident well. extended detention travel arrangements; choose when (subject constraints); select destination. And, great importance, departing facilitates possibility readmission. justified involving "no warrant [the reapplies] readmission proper way will barred." 2 National Observance Enforcement: Report Enforcement Deportation Laws 57, 102-103 (1931) (Report 5). likewise sidestep attendant involuntarily 20 years, depending circumstances removal. 1182(a)(9)(A)(i) ("Any 1225(b)(1) title end initiated arrival again admission (or subsequent ...) inadmissible"); 1182(a)(9)(A)(ii) described clause (I) [240] law, (II) departed outstanding, inadmissible"). An makes grant hand, restrictions although *2315 otherwise based, instance, unlawful 1182(a)(9)(B)(i). B procedural "asks change light discovered since hearing." 1 Gordon 3.05[8][c]. Like creation federal statute. early reference procedure 1916, District addressed Ex parte Chan Shee, 236 F. 579 (N.D.Cal. 1916); Chew Hoy Quong White, 244 749, 750 1917) (addressing correct discrepancies testimony). introduction further evidence" treated then, now, "a matter exercise discretion"; where given "full testify all witnesses original hearing," interference deemed unwarranted. Wong Shong Been Proctor, 79 F.2d 881, 883 1935). 1958, established, promulgated rule reconsideration 3.2, regulatory based. 23 Fed.Reg. 9115, 9118-9119 (1958), 3.2 (1959) reconsider rendered decision" "written motion"); Appeals: Powers; Reopening Reconsideration Cases, 27 96-97 (Jan. 1962). Until limit requesting due availability evidence. Then, 1990, "fear[ful] excludable [were] try[ing] prolong stays type proceedings," Finds Not Abusing Requests Relief, 68 Interpreter Releases 907 (July 22, 1991), "issue regulations respect motions offered limitation number motions," 545(d)(1), 104 5066. little abuse, disincentive bad faith filings. Releases, supra. Because "Congress neither rescinded [n]or frames (DOJ) issued imposing 90 Review; Motions Proceedings, 61 Reg. 18900, 18901, 18905 (1996); 3.2(c) (1996). enactment adopted recommendations DOJ numerical limits. states: general "An Contents *2316 state facts proven hearing granted, supported affidavits evidentiary material. Deadline "In "Except subparagraph, entry removal." Supp.V). To qualify "new," 1229a(c)(7)(B), "material" sort "could former 1003.2(c)(1) (2007); 3.05[8][c] ("Evidence previously unavailable merely movant chose earlier, refused admit evidence"). There narrow exceptions 90-day asylum claims battered spouses, children, parents, 1229a(c)(7)(C)(ii), (iv) here. sure, significant ways noted, though, transforms Nowhere discuss impact agreement. And legislative history indicates what Members might status once elapsed. text plain insofar guarantees each "one section." 1229a(c)(7)(A) III argues that, obtaining permission depart, knowingly surrenders reopening. Brief Respondent 29-30. Further, according Government, proposed undermine "carefully crafted departure," directive promptly. Id., 18, 46-47. contains ambiguity: "shall exceeding days." ("In exceed" periods 1229c(b)); V) (imposing failure depart). forbid relinquishes exchange benefits, That describe however. Nothing past usage coexist. Neither nor says anything depart. language place inability case's changed *2317 bearing eligibility relief. "look particular clause," consider "in connection whole Kokoszka Belford, 417 642, 650, 94 2431, 41 374 (1974) (quoting Brown Duchesne, How. 183, 194, 15 595 (1857); internal quotation marks omitted); Gozlon-Peretz 498 395, 407, 111 840, 112 919 (1991) ("`In determining meaning statute, look language, design object policy'" Crandon 494 152, 158, 997, 108 132 (1990))); Heirs Boisdore, 113, 122, 12 1009 (1850) ("[W]e guided single sentence member sentence, policy"). Reading whole, considering alongside pursue position entitled agrees unsustainable. render nullity most cases (And group insignificant number; 2002 897,267 122,866, approximately 13.7%, DOJ, Review, FY 2006 Statistical Year Book, Q (Feb.2007).) foreseeable, quite likely, expire long issues Proposed Rules, Departure: Effect Motion Reopen Reconsider 72 67674, 67677, n. ("As practical matter, often reasonably expected adjudicate period"). These limitations into account. expired. Although record statistics disposition reopen, increased last decades, doubling 1992 2000 alone; and, result, backlog tripled, resulting 63,763 undecided 2000. Dorsey Whitney Study Conducted for: Bar Association Policy, Practice Pro Bono Re: Procedural Reforms Improve Case Management (2003), http://www.dorsey. com/files/upload/DorseyStudyABA_8mgPDF.pdf. Since 2000, procedures reduce shorten times. 2002, introduced improve management, increase referred use summary basis fact. BIA: Management, 67 54878 (2002), 1003 (2006); 1003.1(e)(4) (summary affirmance procedures). Nevertheless, September 30, 33,063 BIA, 18% *2318 old. U1. 20% fiscal 2005. ibid. Whether adjudicated 60-day likelihood depend pure happenstance namely, whom assigned. Cf. Wilson, 503 329, 334, 1351, 117 593 (1992) (arbitrary results "not presumed lightly"). remedial action Court, whose cognizable Scylla Charybdis: accordance but, pursuant withdrawn. 1003.2(d); 9118, (1958). Alternatively, wishes so, risks underlying sought. (failure "ineligible, cancellation registry INA); 3-4 (treating forfeited lawful reluctant assume designed remove important safeguard distinct class law. 1229c(a)(1), (b)(1)(C) (barring committed, inter alia, aggravated felonies terrorism offenses departure); 1229c(b)(1)(B) (requiring obtains demonstrate "good character"). particularly reveals limitation. Costello INS, 376 120, 127-128, 84 580, 11 559 (1964) (counseling hesitation "before adopting construction statute] would, entire aliens, completely nullify intrinsic part scheme"); Stone 514 386, 399, 115 1537, 131 465 (1995) ("Congress wished impose alien" difficult created treating nonfinal purposes review); INS St. Cyr, 533 289, 320, 121 2271, 150 347 (2001) (recognizing "`the longstanding principle construing lingering ambiguities favor alien'" Gardoza-Fonseca, 480 421, 449, 107 1207, 434 (1987))). IV necessary, read preserve respecting interest quo arrangement. Some solutions, conform proposes pendency *2319 find result. agreed-upon much like settlement return anticipated readmission, represents "has so" 1229c(b)(1)(D); 1240.26(c)(1)(2) cf. 1240.26(c)(3) (the additional conditions "ensure States"). Included substantive imposed selecting obligation arrange actually Brockamp, 519 347, 352, 849, 136 818 (1997) (substantive equitable tolling). If wait out demand full benefit costless lost. Furthermore, invite abuse wish likely reopened authorities. manner, matters stand appropriate allow adopt preliminary permits According proposal, nothing implementing irrevocable. 67679. Accordingly, amendment 1240.26 prospectively, "provide reconsider, period." 67679, Part IV-D; id., 67682, VI applied prospectively only, orders effective departure"). binding DOJ's allowing "warrants respectful consideration." Wisconsin Health Family Servs. Blumer, 534 473, 497, 122 962, 151 935 (2002) (citing Mead Corp., 218, 2164, 292 (2001), Jefferson Univ. Shalala, 512 504, 114 2381, 129 405 (1994)). hold recipients, withdraw, unilaterally, regard merits As option abide terms, or, alternatively, *2320 motion. selects latter option, gives becomes IJ's alternate 1240.26(d). days, yet adjudicated. 1231(a)(1)(A). removal, Manual 6.3(a), http:// www.usdoj.gov/eoir/vll/ qapracmanual/apptmtn4.htm; 1229a(b)(5)(C) (providing entered absentia stayed automatically reopen); though discretion deny stay, constitute states nonfrivolous grounds Though still confronts hard choice, both quixotic proposal elimination follow rule. Contrary assertion, alter withdrawal received costs; withdraws arrangement Allowing agreements, moreover, establishes greater probability considered. incentive filings reopen; envisioned drafting ones forfeit previous motions. Supplemental 1-2 ("[I]t extraordinarily rare expeditious solution postdeparture, order. IIRIRA 306(b), 3009-612 (repealing 1105a(c) (1994 ed.), prohibited "departed issuance order" review). previously, constitutes challenged * request, petition, mistake implicit decision. judgment ordered. *2321 SCALIA, THE CHIEF JUSTICE THOMAS join, dissenting. here authorizes deportable, requests, voluntarily. enables involuntary deportation, destination, schedule (within period), attend specifies days," 1229c(b)(2), Moreover, accepts valid, (whether involuntary) terminates ability move proceeding, All agreed cites currently force mind. Yet holds renounce dresses "withdraw[ing] departure") Ante, 2311. "necessary," says, "preserve reopening," ante, 2318, forfeiture known consequence to. perceived "necessity" exist, lacks chosen remedy. respectfully dissent. resolute belief "conflict interpreted put (1) "remain[ing] [his] date" (2) "avoid[ing] abandon[ing] reopen." Ibid. This, "render departure." 2316-2317. Indeed, problem mythological proportions: "[T]he withdrawn." 2318. So premise asserted seven times course today's 2311, 2316, 2317-2320. false. indeed extraordinary (though doubt justify rewrite) stark alien: lose your reopening, incur penalties. imposes. offers deal, it: "Agree course) you detention, *2322 convenience rather ours, destination select, reentry accompany accept live itif fail promised periodyou Seems entirely reasonable me. Litigants similar rock whirlpool cries rewrite happens, example, whenever criminal defendant plea bargain him lesser deprives trial jury appeal. utterly commonplace electing avenue require surrender remedies. accepted above nowto point bluntly accuratelyhe wants back out. simple that. deadline asking (BIA) based wife's visa Administrative Record 3; 8-21. asked "withdraw departure" "instead accep[t] 10. explaining "an following departure... relief." seems me proceeded just have, reason expect. (and presumably ruled relinquishment provide. Nor suggest weird ancient offer consequences default) "withdrawn" promise (to depart) made. rejection straightforward analysis treatment requires pending. says: "Voluntary `has so' 2318-2319 (citations omitted). Precisely so. through passed; paramount *2323 bound us costs. why convert "option motion"? 2319. (which here) years? Of unusual blue-pencil fashion, provisions, severable rest, disregarded. done blue-penciled unconstitutional. unremarkable, constitutional conditioning waiver unconstitutional condition, commitment. requirement validly enforced itself forbids derives prohibition must, what, creating extrastatutory renege contemplated "We assume," "that [of reopen]," "particularly limitation." fact sacrosanct. "plain statute" cause existence, entirely. Section generally "within described, ed.) unquestionable deprive (sacrosanct) third existence. theoretically possible limited week, Given reality, believe nullification imposition unheard-of penalty gimmick "withdrawn." true reconstructed limit, *2324 instances foreclose, date. Even longer removalmeaning deprived Thus, "reconciled" provisions; simply rewritten them satisfy notion sound policythe commitment prescription prevents suggests compels "[w]hether happenstancenamely, assigned" "arbitrary `not lightly.'" embraces leave, therefore arbitrary. sure considered, enter avoidable infinitely plausible problematic reasons reliance Justice's as-yet-unadopted respects crucial one) 2319-2320 (2007)). converts (on pain losing status) depart.[1] "`warrants consideration.'" 2319-2320. What evidently adoption portion agrees, sub silentio disfavors, namely: 67682. 8-9 (observing "will apply case"). Our jurisprudence truly confused degeneration pick-and-choose technique "respectful" consideration. acknowledged, Department's case: demonstrates agency actively terms grants *2325 too harsh revised future, along very lines Justices majority shows, words, interpretive gymnastics performed, enjoyment innumerable Mr. analysis, approach interpreting summed opinion: "Allowing agreements [ ] considered." 2320. enough. opinion, source flat contradiction Just (absent restriction) relieve defendants another, well able let repudiate agreements. authority, remotely dictates result decrees. affirm Appeals.[2] ALITO, presents questions: depart... i, period," (2008). answer question no. question, reasoning escapes follows: "Absent way," "the the" "is 2319 (emphasis added). apparently approach, proposition agree. make policy rests agency. Smiley Citibank (South Dakota), N. A., 517 735, 740-741, 116 1730, 135 25 (1996) (noting "presumption Congress, left ambiguity *2326 meant implementation agency, understood resolved, foremost, agency"); Treasury, IRS FLRA, 922, 932-933, 1623, 914 (1990) (refusing sustain agency's permissible inevitable) [a] statute," define instance"). (a) majority's (indeed, effect, 2319-2320), (b) circumstances, (c) never appropriate. 2312, Board's unclear. decided permitting However, rejected lacked it, erred. uncertain, vacate remand. NOTES [1] adopt, best permissible. Chevron U.S.A. Inc. Natural Resources Defense Council, Inc., 467 837, 866, 2778, 81 694 (1984). rule, operating deal accepts, accordingly. already made, unconditional. [2] ALITO chooses give motion, believes wrong thought grant. Post, 2325-2326 (dissenting opinion). adequacy denying specify reason. argued withdraw.

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