Opinion ID: 1352327
Heading Depth: 1
Heading Rank: 4

Heading: Legality of the DHS's Termination of Khouzam's Deferral of Removal

Text: Khouzam argues that no diplomatic assurance from Egypt could ever be sufficient to allow the Government to return him there under FARRA. First, he contends that returning an alien to any country that, like Egypt, has a record of consistently engaging in torture, would be a per se violation of FARRA. Second, Khouzam contends that, even if we were to find that an egregious human rights record is not dispositive, additional considerations in this case make any diplomatic assurances inherently insufficient to permit removal to Egypt. In particular, Khouzam asserts that Egypt failed to comply with prior assurances, that certain systemic barriers preclude post-return monitoring, that Khouzam had previously been tortured, and that he is at particular risk as a Coptic Christian. We construe Khouzam's argument as an argument that the regulations must be interpreted under FARRA to preclude individualized determinations in his fact pattern. This argument must fail. Congress left it to responsible agencies to implement the obligations of the United States under CAT. FARRA § 2242(b). Khouzam offers no argument that the regulations prescribed by the DOJ were improperly promulgated or are being arbitrarily enforced. We must accept an agency's efforts to fill in statutory gaps left by Congress unless we find them unreasonable. See Nat'l Cable & Telecomm. Assoc. v. Brand X Internet Servs., 545 U.S. 967, 980, 125 S.Ct. 2688, 162 L.Ed.2d 820 (2005) (citing Chevron U.S.A. v. Natural Resources Defense Council, Inc., 467 U.S. 837, 843-44 & n. 11, 104 S.Ct. 2778, 81 L.Ed.2d 694 (1984)). We do not find it unreasonable for the DOJ to create a procedure for making an individualized determination, in every case, as to whether particular diplomatic assurances are sufficient to permit removal under FARRA. If, in fact, a particular country under consideration has an egregious record of torture, the regulations would require the Government to take such factors into account. Thus, we reject Khouzam's argument that the diplomatic assurances from Egypt are categorically insufficient under FARRA and its implementing regulations.
Khouzam contends that we must interpret FARRA as requiring notice and a hearing prior to his removal in order to avoid serious constitutional questions that would otherwise arise. To the extent that the implementing regulations may conflict with this interpretation of FARRA, Khouzam argues, the statute must control. In the alternative, Khouzam contends that removal without notice and a hearing violates his right to due process under the Fifth Amendment. The Government counters that, inter alia, FARRA and its implementing regulations preclude any such process and, in any event, the Government accorded Khouzam all process he was due. FARRA does not contain a provision for removal based on diplomatic assurances, and does not address what level of process is due to someone in Khouzam's position. Indeed, we find no provision in the relevant portion of the statute that even refers to the process to be afforded an alien. See FARRA § 2242. Rather, Congress left the specific issue of CAT procedures to the Executive Branch by way of the authority to regulate. FARRA directed the Executive to prescribe regulations to implement the obligation of the United States under Article 3 of [CAT]. FARRA § 2242(b). As is discussed above, the regulations adopted to implement FARRA set forth elaborate notice and hearing procedures for termination of deferral of removal in general cases. 8 C.F.R. § 1208.17(d). However, the terse portion of the regulation addressing termination on the basis of diplomatic assurances is silent with regard to what process, if any, is to be afforded the alien. Id. § 1208.17(f). There is nothing in the diplomatic assurance regulations themselves that we could fairly construe as providing an alien with any process whatsoever, let alone the right to a hearing. Id. § 1208.18(c). While the statute and regulations do not require a specific procedure whereby Khouzam could challenge the diplomatic assurances, through notice and an opportunity to test their reliability at a hearing, neither do they specifically preclude such a procedure. [12] The Government urges that affording procedures to test diplomatic assurances would conflict with 8 C.F.R. § 1208.18(c)(3). That regulation provides: Once [diplomatic] assurances are provided... the alien's claim for protection under [CAT] shall not be considered further by an [IJ], the [BIA], or an asylum officer. However, we do not agree with the Government that this regulation conflicts with affording Khouzam procedures to test the diplomatic assurances. By its terms, section 1208.18(c)(3) precludes an IJ, the BIA, or an asylum officer from further considering the alien's claim for protection under [CAT] once diplomatic assurances are proffered by the Government. Id. (emphasis added). We read this language only as requiring that any proceedings then underway must cease when the Government offers diplomatic assurances before an alien's substantive CAT claim has been resolved. Here, Khouzam's claim for protection under CAT was resolved by the Second Circuit before the Government proffered diplomatic assurances. The regulation does not refer to proceedings to test diplomatic assurances because such proceedings would not involve the  alien's claim for protection. Such proceedings would instead involve the Government's claim that diplomatic assurances are sufficiently reliable to justify removal, notwithstanding any likelihood of torture previously proven by the alien. Here, Khouzam seeks to challenge the use of a removal tool by the Government. Accordingly, neither the Government's assertion of diplomatic assurances, nor Khouzam's challenge to those assurances, fall within the purview of section 1208.18(c)(3). [13] Finding no statutory or regulatory provision that either affords or prohibits procedures to challenge diplomatic assurances, we next consider whether Khouzam was entitled to process. The Government, citing Shaughnessy v. United States ex rel. Mezei, 345 U.S. 206, 73 S.Ct. 625, 97 L.Ed. 956 (1953), and United States ex rel. Knauff v. Shaughnessy, 338 U.S. 537, 70 S.Ct. 309, 94 L.Ed. 317 (1950), argues that Khouzam is entitled to no process because he was intercepted prior to entry. Mezei established the entry fiction whereby an alien intercepted on the threshold of initial entry, though physically present in the United States, stands on a different footing for due process purposes than an alien who has passed through our gates. Mezei, 345 U.S. at 212, 73 S.Ct. 625. Knauff upheld regulations affording the Attorney General special powers to exclude aliens only during war or the existence of a specific national emergency proclaimed in May of 1941. Knauff, 338 U.S. at 544-45, 70 S.Ct. 309. Neither case is applicable here. One dispositive difference is that Khouzam, unlike the aliens in Mezei and Knauff, has already been granted statutory relief from removal. Moreover, we have repeatedly held that aliens detained immediately upon arrival without proper documentation are entitled to due process of law during deportation proceedings implicating statutory relief from removal. Dia v. Ashcroft, 353 F.3d 228, 238-39, 246-47 (3d Cir.2003) (en banc); Abdulrahman v. Ashcroft, 330 F.3d 587, 596 (3d Cir.2003); Ezeagwuna v. Ashcroft, 325 F.3d 396, 405 (3d Cir.2003); Abdulai v. Ashcroft, 239 F.3d 542, 549 (3d Cir.2001). In fact, the basic dictates of due process must be met whether an alien facing removal overstayed a visa, Borges v. Gonzales, 402 F.3d 398, 401, 408 (3d Cir. 2005), Fadiga v. Att'y Gen., 488 F.3d 142, 145, 155 & n. 19 (3d Cir.2007), Jarbough v. Att'y Gen., 483 F.3d 184, 186, 192 (3d Cir.2007); entered the country undetected, Mudric v. Att'y Gen., 469 F.3d 94, 96, 100 (3d Cir.2006); Cham v. Att'y Gen., 445 F.3d 683, 689, 691 (3d Cir.2006); Sewak v. INS, 900 F.2d 667, 667, 671-72 (3d Cir. 1990); or became a legal resident but then committed an enumerated crime, Romanishyn v. Att'y Gen., 455 F.3d 175, 178, 185 (3d Cir.2006); Singh v. Gonzales, 432 F.3d 533, 536, 541 (3d Cir.2006); Chong v. Dist. Dir., INS, 264 F.3d 378, 381, 386 (3d Cir. 2001). Further, we have recognized this right to due process not only where, as here, mandatory statutory relief from removal was at issue, see, e.g., Singh, 432 F.3d at 536 (withholding of removal under INA § 241(b)(3) and protection under CAT); Chong, 264 F.3d at 381 (withholding of removal under INA § 241(b)(3)), but also where the alien was seeking discretionary statutory relief, Abdulrahman, 330 F.3d at 591, 596 (asylum); Abdulai, 239 F.3d at 545, 549 (same). On this basis, it is a simple matter for us to conclude that Khouzam was entitled to due process before he could be removed on the basis of the termination of his deferral of removal. Next, we determine whether the Government met this constitutional obligation. In Mathews v. Eldridge, 424 U.S. 319, 96 S.Ct. 893, 47 L.Ed.2d 18 (1976), the Supreme Court explained that [t]he fundamental requirement of due process is the opportunity to be heard at a meaningful time and in a meaningful manner. Id. at 333, 96 S.Ct. 893. We have found that due process guarantees three basic things in the removal context. First, an alien facing removal is entitled to factfinding based on a record produced before the decisionmaker and disclosed to him or her. Abdulai, 239 F.3d at 549 (internal quotation marks omitted). This includes a reasonable opportunity to present evidence on [his or her] behalf. Abdulrahman, 330 F.3d at 596. Second, the alien must be allowed to make arguments on his or her own behalf. Abdulai, 239 F.3d at 549. Third, the alien has the right to an individualized determination of his or her interests. Id. (brackets and internal quotation marks omitted). These elements are predicated upon the existence of a neutral and impartial decisionmaker. See Abdulrahman, 330 F.3d at 596 (internal quotation marks omitted). It is obvious that Khouzam was not afforded notice and a full and fair hearing prior to his imminent removal on the basis of diplomatic assurances. In fact, Khouzam was afforded no notice and no hearing whatsoever. First, the Government failed to make any factfinding based on a record that was disclosed to Khouzam. The Government did not permit Khouzam to see the written diplomatic assurances that had been obtained from Egypt, and provided no information pertaining to the Government's reasons for crediting those assurances. The Government merely provided Khouzam with a cursory three-line letter dated three months after the termination decision had been made. Khouzam had no opportunity to develop a record with his own evidence. In fact, beyond the Government's bare assertions, we find no record supporting the reliability of the diplomatic assurances that purportedly justified the termination of his deferral of removal. Second, Khouzam had no opportunity to make arguments on his own behalf. The Government argues that Khouzam, after receiving notice of the termination, could have sent the DHS a letter explaining why he thought the decision was wrong. We refuse to regard the general ability of an alien to correspond with an agency as sufficient to satisfy due process, particularly after the agency has decided the pertinent issue. In addition to whatever other flaws may exist in this purported opportunity to argue, we note that Khouzam would not have had the benefit of a neutral and impartial decisionmaker. Finally, we also find that Khouzam was denied his right to an individualized determination. Even if we assume, in the absence of a meaningful record, that the Government considered all aspects of Khouzam's case prior to terminating his deferral, we again see no indication that Khouzam had the benefit of a neutral and impartial decisionmaker. Khouzam argues that the termination decision was tainted by the bias of an organization that had been attempting unsuccessfully to remove him for nearly a decade. While the combination of investigative and adjudicative functions does not, without more, constitute a due process violation, we are not precluded in a particular case from finding that the risk of unfairness is intolerably high. Withrow v. Larkin, 421 U.S. 35, 58, 95 S.Ct. 1456, 43 L.Ed.2d 712 (1975). On the basis of these considerations, we conclude that the Government terminated Khouzam's deferral of removal without constitutionally sufficient process. After establishing a due process violation, an alien facing removal must normally also demonstrate substantial prejudice. E.g. Singh, 432 F.3d at 533 (no substantial prejudice where alien was denied ability to call additional witnesses and claimed not to have understood questions at hearing); Romanishyn, 455 F.3d at 185 (no substantial prejudice where alien was denied ability to call additional witnesses at hearing). Yet this case presents a special problem. The Government did not conduct a hearing or provide any meaningful record justification for the termination decision. Khouzam accordingly has no record upon which to base an argument, and we have no record upon which we may assess prejudice. Such a complete lack of process is inherently prejudicial. Cf. Podio v. INS, 153 F.3d 506, 509-11 (7th Cir.1998) (reversing a BIA ruling on due process grounds where alien was not allowed to complete his testimony or to present corroborating witnesses) (citing Gentry v. Duckworth, 65 F.3d 555, 559 (7th Cir.1995)) ([P]rejudice to the right of access to the courts occurs whenever ... court doors [are] actually shut on a complaint, regardless of whether the suit would ultimately have succeeded.). In view of the complete absence of any process by which Khouzam could have challenged the Government's termination decision, we find it obvious that Khouzam was substantially prejudiced. We do not attribute the lack of due process to either FARRA or its implementing regulations, for neither expressly directed the Executive to act in a manner that offends the Fifth Amendment. A statute is not facially unconstitutional unless no set of circumstances exists under which the Act would be valid. United States v. Salerno, 481 U.S. 739, 745, 107 S.Ct. 2095, 95 L.Ed.2d 697 (1987). It is also possible for a particular provision to more narrowly offend the Constitution on an as applied basis, and thus `be declared invalid to the extent that it reaches too far, but otherwise [be] left intact.' Ayotte v. Planned Parenthood of N. New England, 546 U.S. 320, 329, 126 S.Ct. 961, 163 L.Ed.2d 812 (2006) (quoting Brockett v. Spokane Arcades, Inc., 472 U.S. 491, 504, 105 S.Ct. 2794, 86 L.Ed.2d 394 (1985)). However, neither circumstance exists here. The process of arriving at diplomatic assurances as outlined in the regulations is not problematic. See 8 C.F.R. § 1208.18(c). It is the ability to test those assurances prior to removal, an issue not covered in the regulations, that gives us pause from the standpoint of due process. Both FARRA and its implementing regulations are silent as to the process to be afforded to an alien subject to removal on the basis of diplomatic assurances. Therefore, neither can be said to offend the Constitution facially, nor can any particular provision be identified that reaches too far under Khouzam's circumstances. [14] Instead, the Executive, without relying on any statutory or regulatory provision, reached too far by failing to provide Khouzam constitutionally adequate process. Because the Government violated the Due Process Clause by terminating Khouzam's deferral of removal without affording him an opportunity to test the reliability of Egypt's diplomatic assurances, the termination order was invalid. Since Khouzam was taken into custody on the basis of this invalid order, he must be restored to the pre-existing terms of release granted by the District Court of the District of New Jersey on February 6, 2006. We will remand the matter to the BIA in order to ensure that Khouzam is afforded due process before he may be removed on the basis of diplomatic assurances. While it is not our role to define the procedures to be used, we follow the example of the Supreme Court and outline the basic requirements of due process in this context. Cf. Goldberg v. Kelly, 397 U.S. 254, 265-72, 90 S.Ct. 1011, 25 L.Ed.2d 287 (1970) (providing guidelines to be followed to ensure that a state affords statutory beneficiaries adequate process in the welfare termination context). Prior to removal on the basis of diplomatic assurances, Khouzam must be afforded notice and an opportunity to test the reliability of those assurances in a hearing that comports with Abdulai and its progeny. The alien must have an opportunity to present, before a neutral and impartial decisionmaker, evidence and arguments challenging the reliability of diplomatic assurances proffered by the Government, and the Government's compliance with the relevant regulations. [15] The alien must also be afforded an individualized determination of the matter based on a record disclosed to the alien. [16] We have recognized the adequacy of process generally afforded aliens facing removal in other contexts, and have no doubt that the Government can readily adapt such processes to removal based on diplomatic assurances.