Document: 42 L.Ed.2d 231 95 S.Ct. 272 419 U.S. 65 William B. SAXBE, Attorney General, et al., Petitioners,v.Robert BUSTOS al. Cristobal CARDONA Petitioners, v. Nos. 73—300, 73—480. Argued Oct. 17, 1974. Decided Nov. 25, Syllabus Some aliens who live in Mexico and Canada commute to work the United States. The Immigration Naturalization Service has approved this practice with respect both daily seasonal commuters, classified such as immigrants 'lawfully admitted for permanent residence' are 'returning from a temporary visit abroad,' category of 'special immigrant' defined by Nationality Act, 8 U.S.C. § 1101(a)(27)(B). Those that classification have freedom usual documentation numerical requirements labor certification 1182(a)(14). Certain farmworkers collective-bargaining agent brought suit declaratory injunctive relief against thus classifying alien commuters. District Court dismissed action. Appeals upheld commuters but rejected it Held: Alien residence,' abroad' when they enter States, is applicable This long been administrative construction statute context factor which must be accorded great weight when, here, congress considered subject not seen fit alter practice. Pp. 69—80. 156 U.S.App.D.C. 304, 481 F.2d 479, affirmed part reversed part. Mark L. Evans, Washington, D.C., Saxbe others. Bruce J. Terris, Robert Bustos, Cardona Mr. Justice DOUGLAS delivered opinion Court. 1 their homes or places employment country others do so on basis, permitted Service. question whether facts these cases conforms Act. It turns meaning 101(a)(27)(B), 66 Stat. 169, amended, 79 916, 1101(a)(27)(B), defines one variety an immigrant residence, abroad.' 2 qualify under 1101(a)(27)(B) may entry without requirements. 1881(b). regulations1 implement 1181(b) allowing use registration receipt card, normally called 'green card,' lieu visa regard limitations2 if he unrelinquished lawful residence States after absence abroad exceeding year.' 3 Act presumes 'until establishes . entitled nonimmigrant status';3 'immigrant' every cannot bring himself into enumerated class nonimmigrants.4 One nonimmigrants5 'an having foreign no intention abandoning (ii) coming temporarily perform services labor, unemployed persons capable performing service found country.' 4 An does nonimmigrants seeks at time can country.6 If some other way, Act's limitations, unless included classes 'immediate relatives' citizen immigrants.'7 On hand, already noted, returning abroad.'8 qualifies excluded provisions 1182(a)(14).9 term 'the status lawfully privilege residing permanently changed.'10 achieves first instance complying any limitations admission, details important here. After his initial admission free leave re-enter limitations. authorizes General re-admit formal documentation. 1181(b). He exercised authority, return what was briefs oral argument card.' 5 Farm Workers Organizing Committee11 giving benefits abroad.'12 action opinion. held proper not, 479 (1973). We granted petition cross-petition light conflict between decision below Ninth Circuit Gooch Clark, 433 74 (1970). 6 Our conclusions immigrants, Moreover, wording legislative history indicate same treatment appropriate Commuters different those groups only Secretary Labor 'will adversely affect wages working conditions workers States.' agree conclusion Gooch. Accordingly, we affirm judgment now before us respects reverse 7 A main reliance plaintiffs provision Act13 much-discussed subsection (15)(H)(ii) provides Under tendered, partially meet definition intend abandon come here service, fail satisfy completely show people Nation. That should invoke presumption until proves nonimmigrant.14 agree, moreover, 'was intended confer certain were needed American force who, unlike would unable achieve admittance status.' F.2d, 78. Service15 cover alien, like commuter, 'permanent comes job character, even though period limited. To repeat, '(e)very shall presumed satisfaction consular officer immigration officers section 1101(a)(15).'16 Before prospective employer submit behalf 1184(c); INS approves petition, apply demonstrate fact status.17 9 conclude (15)(H) (ii). None categories applicable, 1184(b) immigrants. 10 commuter shown end our problem. remains properly treated group immigrants' (27)(B),18 is, actual country. 11 Section 1101(a)(20) accordance laws, changed' (italics added). makes phrase descriptive need reduced satisfied, changed. 12 changed because never claimed. But read did case mean change Congress had mind pursuant 1257. 79. 13 referred acquired satisfies (1) immigrants,19 (2) qualitative matters health, morals, economic status,20 (3) visa.21 applicant also state plans remain permanently.22 declare suggest will denied him, reside As 'status' carries several privileges: indefinitely; country; abroad; establishing 14 Thus residence.' majority dissent Gooch, find viewed 79—81, 82 n. 1. agreed disagreeing Neither court nor took position taken 15 reflects practice, dating back least 1927 Bureau Department Labor.23 In 1940 transferred Justice24 where today. April 1, 1927, issued Order No. 86.25 order, required gain could border crossing privileges. order '(a)liens complied governing entered 'Thus,' said instant cases, born,' U.S.App.D.C., 485. 16 longstanding weight, particularly revisited left untouched. Such congressional acquiescence add gloss gualification its face unqualified statutory language. Massachusetts Trustees 377 235, 84 1236, 268 (1964); Midwest Oil Co., 236 459, 35 309, 59 L.Ed. 673 (1915). defendants acknowledge, identical language sections present. 17 see difference words each. Appeals, however, rested essentially than obtained 18 Prior 1917 there commuting Legislation passed 1917, 1921, 1924.26 statutes remained able freely cross restrictions 19 approach 86. While 1952 163, made mention while 1965 amendments 911, likewise silent assumed repealed sub silentio; agree. quite view problem history. 20 dates 1943 Government importation Mexican agricultural workers. 56 1759. legislated 1951,27 requiring farmers Nation make reasonable efforts attract domestic prior labor. known bracero program merely new name former bracero. inaccurate. braceros start nonimmigrants; braceros, indeed few, H.R.Rep.No. 722, 88th Cong., 1st Sess., (1963) status. always category. 21 1964 type lapsed; next year amended making stricter findings lack adverse effect 22 provision, quoted,28 close relatives. sought effective date amendment certificate Labor; him. purpose limit admissions laborers, prejudice aliens, existing jobs.29 23 mentioned 86 (not nonimmigrants), obtaining cards 'considered residence.'30 Cf. Karnuth ex rel. Albro, 279 231, 244, 49 274, 73 677 (1929).31 thrust lift natives quota nonimmigrants. Thus, down date, nonquota documents. regulation carried forward various regulations 1952.32 reviewed sustained published decisions.33 suggested eliminated commuter. Board reaffirmed validity Matter H. _ O _, I. & N. Dec. 716 (1954). Thereafter repeated decision34 adherence alien-commuter concept. phase further, reported, Senate Judiciary Committee tendered voluminous report nearly 1,000 pages touching describing detail, including discussed No doubt desirability expressed. clear S.Rep.No. 1515, 81st 2d Sess. (1950) (the Omnibus Study Report), reveals acceptance system. 24 changes relevant were, stated minor technical contain suggestion problem, 80 81. H.R.Rep. 745, 89th (1965); S.Rep. 748, (1965). 25 Since numerous reports committees very knowledgeable about reached consensus policy reaching wrong. know Western Hemisphere Report35 dimensions considerable. Daily number more 42,000 whom 25,000 engaged occupations agriculture. total Canadian exceeds 10,000. Seasonal 8,300 according Service's estimate. Commission Civil Rights estimates cut off, lose $50 million annually.36 State 250,000 family members dependent income earned commuters37 account 25% 30% communities.38 Termination might well impact communities Mexicans residents settle increasing problems housing education towns side Rio Grande. Former Rogers submitted affidavit stating 'sudden judicial termination system, displacing present serious deleterious upon relations Canada.' 26 twofold. First, sanction ones support two opposed ways strike program. There 27 Second, abolished differently it. implicate many policies raise political, economic, social nature recuse itself. At times judges legislate 'interstitially' resolve ambiguities laws. taking all engaging farm out 'interstitial' or, Holmes once put it, 'molecular.'39 massive 'molar' ill-equipped. 28 insofar concerned. 29 So ordered. 30 Judgment 31 WHITE, joined BRENNAN, MARSHALL, BLACKMUN, dissenting. 32 Court, interpretation permits finding country, contravenes cardinal principles construction: 'administrative avail overcome plain commands nothing construction.' Norwegian Nitrogen Products Co. 288 294, 315, 53 350, 358, 77 L.Ed.796 (1933) (Cardozo, J.). Administrative over available tool terms doubtful ambiguous. Southern Ute Indians, 402 159, 173 8, 91 1336, 1343, 695 (1971); Estate Sanford Commissioner, 308 39, 52, 60 51, 59, (1939); supra. characteristics whose ordinary specific used statutes, principle applies 33 * reasonal either seasonally work.1 commuter's defining characteristic limited presence across each day returns dwelling place done. contrast, continuously during seasons works then absents remaining portions year. For reach result, undertake unlikely project demonstrating legal 34 given dispensations normal immigrant, means turn changed.' 1101(a)(20). laws define general abode,' person's 'principal, fact, intent,' 1101(a)(33), relationship person being 'of continuing lasting nature, distinguished ..' 1101(a)(31). own regulations, exempt entry, 'unrelinquished 'temporary CFR 211.1(b)(1). face, flatly contrary regulation. Confronted obvious difficulty resident accommodate commuters,2 majority, aid history, contends special, meanings: 36 'Section Ante, 71 supplied Court). 37 italics terminology, gives basis believing something used. reasonably seeking enacted definitions provide special Clearly dealing seek permanent-resident fulfill intention. 38 simply bend allow proposition adopt meant include currently become residents3—the ultimate rationale accepted construction.4 II 39 conflicts express authoritative appears construction, burden proof necessarily proponent view. '(c) ongressional inaction frequently betokens unawareness, preoccupation, paralysis,' Zuber Allen, 396 168, 185 186, 21, 90 314, 324, 345 (1969), silence standing alone constitute elevates stressing indication 'repealed' 75. 40 treating began Labor's 86.5 Canadians practical them; informal followed.6 212(a)(14) 183, provided certified sufficient field 1965, tightened restriction providing inadmissible insufficient 1182(a)(14).7 another amendment, imposed Hemisphere, 1968.8 41 presumption, therefore, concerned itself propriety statutes.9 Only passage legislation subsequent evidence possible concern entering work. expressed influx Court's persuasive force. establish acquiescence. Leary 395 6, 24—25, 89 1532, 1541 1542, 57 (1969). cited brief description contained extremely extensive investigation Nation's system 1950.10 '(n)o expressed,' ante, 78, years later incompatible neither point spite incompatibility.11 say since committee indicating knowledge 'has wrong.' Ibid. clearly, erroneously, placed rather agency acquiesced. Very recently, noting exception statute, bootstrap area jurisdiction repeatedly violating mandate.' FMC Seatrain Lines, Inc., 411 726, 93 1773, 1785, 620 allowed case.12 III 43 acknowledges implications issues interstitial require resolution, rests rejection unambiguous considerations: consequences consistent legally doing choose take up avoid negative effects country's Canada. 78—79. interests, opposing interests form calculus, hardly equipped authorized predict direction balance ultimately tip. Because I believe strayed neutral function applying traditional respectfully dissent. §§ 1181(a) 1151—1153. 1184(b). 1101(a)(15). 1101(a)(15)(H). proposed 1973 stay extension years. 93—461, p. 1101(a)(15)(H)(ii). 1151(a). House Report, supra, 5, 16, recognizes covered Title 1182(a)(14) provides: '(a) Except otherwise chapter, following ineligible receive visas States: '(14) Aliens skilled unskilled determined (A) able, willing, qualified, application destined (B) similarly employed.' farmworkers. Two laborers four intervened parties herein argued 211.1(b)(1) preclude dispute exists, previously employed there. claim decided presented plaintiffs' certiorari. Hence offer views merits claim. Contopoulos, 654 (1964). C. Gordon Rosenfield, Law Procedure 2.14b (rev. ed. 1974). 1101(a). 1182. 1181(a), 1201. 1202(a). See 826; 596; c. 141, 736. By Reorganization Plan V, 54 1238. reads follows: 'Subject: Land procedure '1. Hereafter contiguous countries engage visiting tourists, business pleasure, visitors thereof; class. '2. However, enjoying continue enjoy payment head tax, tax assessible (sic) original and, employment. 'A. occurred June 3, 1921. 'B. Natives July 1924. '3. nationalities 30, 1924, Laws privilege, time, exceed six months within obtain comply '4. privilege. '5. residence. '6. issuance identification heretofore. '7. Identification rubber-stamped 'IMMIGRANT '10. All heretofore issued, cannot, law, canceled incoming trip holder taken. '12. holders card inquired periodically .. When 'nonimmigrant' 'immigrant,' stamped correct 29, 874; 5; 190, 153. 119. 9, 2.40. uprooted entirety, emphasizes prevent 'influx' destroy arrangements. Id., 15. text wanted 154, pleasure.' hire. Rules Regulations, Jan. 1930, Rule Subd. C; 3.6 110.6 (1947). D._ C_ N.Dec. 519 (1949); L_ 454 (1951). M_ D_ S_ 209 (1958); Bailey, 466 (1966); Burciaga-Salcedo, 665 Gerhard, 556 (1967); Wighton, 683 Hoffman-Arvayo, 750 (1971). Select Immigration, 104 (1968). 91—83, 'can resolved drastically putting refining current operations.' Hearings H.R. 9112, 15092, 17370 Subcommittee Judiciary, 91st 205—207. Stranger One's (Clearinghouse Publication 19, 1970). Statement Assistant Oliver Sept. 1967, 6. 4. 'I recognize hesitation legislate, interstitially; confined molar molecular motions.' Pacific Jensen, 244 205, 221 (1917) 524, 531, 61 1086 (dissenting opinion). Counsel federal (hereinafter Government) indicated actually spectrum hard-and-fast categorles. whole switch commuting. less regularly workday, sometimes employers. Tr. Oral Arg., 18, 54. Strain evident home workplace 'from (emphasis text, refer 'a 211.1(b). effort 311, 486 Others noted 'logical inconsistency' precise law justified discordance citing 'practical needs considerations policy.' 2.19, 105 (1973 Cum.Supp.). 'amiable fiction' product ingenuity.' 2.8b, 2—43 (1974). acknowledged 'manifestly statutes' '(t)he artificial one, predicated good international maintained cherished friendly neighbors.' 209, 213 (1958). stretch status, throw resident' throughout anomalous consequences. 74, 83—85 (CA9 1970) (Wright, J., dissenting). example, 'spouses, unmarried sons daughters second preference visas. 1153(a)(2). immediate kin perhaps eligible although preference. suggests purposes decided. Brief Federal Parties 28. reluctant accept invitation ad hoc aspect central intent applied generally. 86, 75 25. removed 77. quotas. 1924 quotas nonimmigrants, designed primarily through Letter Labor, dated 26, 1928, App. 2401, 70th 5—10 (1929). Informal despite authorities intending interfere crossings Report 101—102 laborers. CFR. 60.2(a)(2), 60.7 (Schedule B). 21(e), 921. refers inclusion early draft bill, 5138, became Registration 1940, prohibited Hearing 5138 76th ser. (1939). deletion reporting bill signal approval rather, restricting Canadians, unwillingness restrict persisted 1952. 535—536, 616 (1950). concedes grew lapsed. 53; Gordon, Amiable Fiction—Alien Laws, Employment 'Green Card' During Disputes, 12667 Special Education 181, 183 Therefore, reason acquiesced cites (1964), co., (1915), construction. 74. comparison situation graphically extent majority's departure canons faced harmonizing apparently inconsistent agency's authority. literal insufficiently dispose question, circumstances, looked 'some weight'; successive extensions authority then, controlling. U.S., 241—245, S.Ct., 1241—1244. Presidential power withdraw public lands private acquisition open occupation purchase hundreds withdrawal orders, beginning Government, repudiated Congress. addition, Executive seven Interior, response resolution calling information withdrawals, sent Executive's repudiate soon withdrawals President prospectively, past courts. 469 471, 480—483, 311—312, 315—317. Nothing remotely resembles historical record premised

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