Opinion ID: 2997285
Heading Depth: 2
Heading Rank: 2

Heading: Timeliness of Motion to Reopen for a Determina-

Text: tion of CAT Eligibility While we conclude that Kay was not entitled to recision of his in absentia order to consider his eligibility for asylum and withholding of removal, his motion to reopen for a Nos. 02-3140 & 03-2125 11 determination of his CAT eligibility is a separate matter.7 We find that the BIA incorrectly deemed Kay’s CAT motion untimely and failed to provide a reasoned basis for its denial on the merits. As it relates to the timeliness of Kay’s November 7, 2000 motion to reopen, this case presents the question: when does an in absentia order of removal “become final” for the purposes of determining the deadline for an application to reopen proceedings under CAT? According to its regulations: An alien under a final order of deportation, exclusion, or removal that became final prior to March 22, 1999 may move to reopen proceedings for the sole purpose of seeking protection under § 208.16(c). Such motions shall be governed by §§ 3.23 and 3.2 of this chapter. . . . The motion to reopen shall not be granted unless: (i) [t]he motion is filed within [sic] June 21, 1999; and (ii) [t]he evidence sought to be offered establishes a prima facie case that the applicant’s removal must be withheld or deferred under §§ 208.16(c) or 208.17(a). 8 C.F.R. § 208.18(b)(2) (emphasis added). However, “[a]n alien who is in exclusion, deportation, or removal proceedings on or after March 22, 1999 may apply for withholding of removal under § 206.16(c), and, if applicable, may be considered for deferral of removal under § 208.17(a).” Id. § 208.18(b)(1). 7 When Kay first applied for asylum or withholding of removal, CAT relief was unavailable because the BIA refused to exercise jurisdiction over CAT motions as CAT was not a self-executing treaty and no regulations implementing the convention had been drawn. See In re H-M-V-, 22 I. & N. Dec. 256 (BIA 1998) (declining to exercise jurisdiction over CAT motions prior to the creation of regulations concerning CAT implementation). 12 Nos. 02-3140 & 03-2125 Generally, an agency’s interpretation of its regulations is entitled to due deference; however, when the agency’s interpretation contravenes the plain language of the regulation, congressional intent trumps. Zheng v. Ashcroft, 332 F.3d 1186, 1193-94 (9th Cir. 2003) (citing Chevron, U.S.A., Inc. v. Natural Res. Def. Council, Inc., 467 U.S. 837, 842-43 (1984)). We recognize that the IJ’s September 9, 1998 in absentia order was a final order of removal; however, once Kay filed a timely motion to reopen, under the plain language of the CAT regulations, his deportation order did not “become final” until that motion to reopen was denied by the BIA on July 19, 2002. In its July 19, 2002 order, the BIA summarily concluded, without analysis, that the in absentia order of removal became final September 9, 1998, the same day it was entered. While we acknowledge that motions to reopen are generally disfavored and aliens who fail to appear for hearings are to be rebuked, for the reasons stated below, we find that Kay was not subject to the June 21, 1999 CAT filing deadline as he was in deportation proceedings after March 22, 1999. First, in the context of an in absentia order, the only way to “appeal” the removal order is to file a motion to reopen the proceedings. 8 U.S.C. § 1229a(b)(5)(C). The plain language of the CAT regulations contemplate that the appeals process affects the timeliness determination by drawing a distinction between the time an order is “final” and when it “becomes final.” 8 C.F.R. § 208.18(b)(2). Further, this court has held that a motion to reopen is “part and parcel” of the underlying removal proceeding. Nwaokolo v. Ashcroft, 314 F.3d 303, 306 (7th Cir. 2002) (per curiam). Therefore, like a merits determination, such as a denial of asylum relief, we find that an in absentia order of removal becomes final “when the Board renders its decision in a case on appeal or certification or, where no appeal is taken, when the time allotted for appeal has expired or the right to appeal is waived.” In re L-V-K-, 22 I. & N. Dec. 976, 977-78 (BIA 1999) (en banc). Nos. 02-3140 & 03-2125 13 Moreover, upon the filing of a motion to reopen after an in absentia removal order has been entered, an applicant’s removal is automatically stayed, 8 C.F.R. § 1003.23(b)(1)(v), in order to allow the Board to conduct an independent review of the order, In re Cecilia Rivera-Claros, 21 I. & N. Dec. 232 (BIA 1996) (applying reasoning to the 1994 version of the United States Code which is not materially different from current version). Once a deportation order is stayed, the Immigration Court is prevented from executing an alien’s deportation. In re M-S-, 22 I. & N. Dec. 349, 354 (BIA 1998); cf. 8 U.S.C. § 1231(a)(1)(B) (“If the removal order is judicially reviewed and if a court orders a stay of removal of the alien,” the Board’s 90-day period to effectuate removal does not begin to run until “the court’s final order” is entered.). We also note that Kay could not have appealed the entry of the September 9, 1998 in absentia order directly to this court without first exhausting his administrative remedies and “appealing” the IJ’s decision to the BIA through a motion to reopen. See Wijeratne v. INS, 961 F.2d 1344, 1345-46 (7th Cir. 1992) (finding that BIA’s decision denying motion to reopen is a “final order”). Finally, CAT relief is treated as a separate avenue for relief. An applicant may file a second motion to reopen for CAT relief without showing that the information presented was previously unavailable. 8 C.F.R. § 208.18 (b)(2). Given the Board’s distinct treatment of the review of in absentia orders coupled with the nature of determining CAT relief, we find that the September 9, 1998 order of removal did not “become final” until the “appeals” process was terminated with the BIA’s denial of Kay’s appeal of his motion to reopen on July 19, 2002. Therefore, Kay was not required to meet the June 21, 1999 deadline.8 8 We recognize the importance of finality in the immigration process and the possibility that applicants may attempt to elongate the process in order to extend their time in this country, see INS (continued...) 14 Nos. 02-3140 & 03-2125 Even if we were to find that Kay was subject to the June 21, 1999 filing deadline, we would still be permitted to review the Board’s substantive decision denying Kay CAT relief. In its March 27, 2003 order, the Board considered and denied Kay’s October 15, 2002 motion to reopen for consideration of his CAT eligibility on the merits. The Board could have decided the issue of Kay’s CAT entitlement as an element of the ineffective assistance of counsel determination, finding that he was not prejudiced by the error and addressing his compliance with the requirements of In re Lozada, 19 I. & N. Dec. 637 (BIA 1988) (requiring an applicant to: (1) file an affidavit explaining the agreement between the applicant and former counsel and listing what actions counsel failed to take; (2) grant former counsel an opportunity to respond; and (3) indicate whether former counsel’s error was reported to disciplinary authorities). However, the Board deemed the ineffective assistance of counsel issue moot and stated that the documentation submitted by Kay failed to establish a prima facie case for eligibility under CAT. As the Board dismissed Kay’s motion on the merits, we have jurisdiction to review its substantive determination. See Avelar-Cruz v. INS, 58 F.3d 338, 340 (7th Cir. 1995) (“Because the Board did not consider the argument waived and addressed its merits, we have jurisdiction to review the Board’s resolution of that issue.”). We now turn to Kay’s motion for relief under CAT.