Document: 526 U.S. 415119 S.Ct. 1439143 L.Ed.2d 590 121 F.3d 521, reversed and remanded. SUPREME COURT OF THE UNITED STATES No. 97 1754 IMMIGRATION AND NATURALIZATION SERVICE, PETITIONER v. JUAN ANIBAL AGUIRRE-AGUIRRE ON WRIT CERTIORARI TO APPEALS FOR NINTH CIRCUIT [May 3, 1999] Justice Kennedy delivered the opinion of Court. 1 We granted certiorari to consider analysis employed by Court Appeals in setting aside a determination Board Immigration (BIA). The BIA ruled that respondent, native citizen Guatemala, was not entitled withholding deportation based on his expressed fear persecution for earlier political activities Guatemala. issue case is whether likely occur, but whether, even assuming it is, respondent ineligible because he "committed serious nonpolitical crime" before entry into United States. 8 U.S.C. § 1253(h)(2)(C). beginning point BIA's its protest certain governmental policies had burned buses, assaulted passengers, vandalized destroyed property private shops, after forcing customers out. These actions, concluded, were crimes. In reaching this conclusion, relied statutory interpretation adopted one decisions, Matter McMullen, 19 I. & N. Dec. 90 (BIA 1984), aff'd, 788 F.2d 591 (CA9 1986). 2 On appeal, Ninth Circuit concluded applied an incorrect crime provision, remanded further proceedings. Appeals' view, as we understand it, erred misconstruing controlling statute employing analytical framework insufficient take account own precedent subject. According court, failing factors, including "the necessity success Aguirre's methods"; acts grossly out proportion their objective or atrocious; might suffer upon return 524 1997). 3 certiorari. 525 ___ (1998). disagree with address each three specific areas which found deficient. reverse judgment court remand 4 * provision applicable here provides "[t]he Attorney General shall deport any alien country if determines such alien's life freedom would be threatened race, religion, nationality, membership particular social group, opinion." 1253(h)(1). added Nationality Act (INA), 66 Stat. 166, 1101 et seq., (1994 ed. Supp. III), Refugee 1980 (Refugee Act), Pub. L. 96 212, 94 102. See INS Stevic, 467 407, 414 416, 421 422 (1984). As general rule, mandatory "establish[es] more than [he] subject specified grounds," id., at 429 430, has some exceptions. relevant here, does apply, place risk authorized, "if that" "there are reasons considering committed outside States prior arrival States." 5 Under immigration laws, distinct from asylum, although two forms relief serve similar purposes. Whereas only bars deporting countries, grant asylum permits remain apply permanent residency year. Cardoza-Fonseca, 480 421, 428 429, n. 6 (1987). addition, whereas unless exceptions applies, decision should eligible General's discretion. Ibid. consequence, under law then force, able seek irrespective eligibility withholding. incidental point, note Illegal Reform Immigrant Responsibility 1996 (IIRIRA), 104 208, 110 3009 546, Congress revised provisions. provisions now codified 1231(b)(3) ed., §1158. current law, enacted IIRIRA, may she believing §1158(b)(2)(A)(iii). parties agree IIRIRA govern respondent's case. Tit. III A, §§309(a), (c), 625; Div. C, VI §604(c), 692. Prior Antiterrorism Effective Death Penalty (AEDPA), 32, IV B, §413(f), 1269, discretion withhold when necessary ensure compliance international treaty based, see infra, 10 11. This made "applications filed before, on, after" April 24, 1996, final action been taken them date." AEDPA §413(g), 1269 1270. constituted rendered March 5, CFR 243.1 (1995), App. Pet. Cert. 12a, so §413(f) 7 turn matter us. 1994, charged deportability Naturalization Service (INS) illegal Respondent conceded At hearing Judge testified, through interpreter, politically active Guatemala 1989 1992 student group called Estudeante Syndicado (ES) National Central Union party. 20, 36 37. He testified about threats due activity. threats, believed, different quarters, Guatemalan Government, right-wing government support groups, left-wing guerillas. 23a. described other ES members engaged various high cost bus fares government's failure investigate disappearance murder students others. 20 21; 22a For purposes our review, assume amount important advised fare represents significant portion many Guatemalans' annual living expense, rise impose substantial economic hardship. Brief Massachusetts Law Institute al. Amicus Curiae 18 19. involvement increases, aspects transportation system, focus discontent country. Id., 16 21. 9 official record, fellow "strike" "burning breaking windows just attacking police, police cars." 20. estimated participated buses fire, dousing gasoline. at. 46. Before fire order passengers leave bus. Passengers who refused stoned, hit sticks, bound ropes. 46 47. "would break stores," "t[ake] people stores there," "throw everything floor." 48. applications finding likelihood opinions returned 31a 32a. appealed BIA. did file brief BIA, request extension time do granted. Petitioner 10, 6; Record 13 15. sustained INS's appeal decision, vacated Judge's order, ordered deported. 18a. With respect withholding, decide established requisite determined that, event, within meaning §1253(h)(2)(C). 11 addressing definition crime, first set forth Dec., 98: "In evaluating nature aspect offense outweigh common-law character. involves atrocious nature." instant case, found, criminal acknowledged dissatisfaction "seeming inaction investigation deaths raising fares." It said, however: "The ire manifested itself disproportionately destruction assaults civilians. Although agenda, those goals outweighed strategy strikes ." discretionary light against innocent Guatemalans." 17a. 12 A divided panel petition review 521 majority, exception legally deficient respects. First, have "consider[ed] Aguirre Guatemala" "balance[d] admitted offenses danger him death." 524. Second, "considered the[ir] alleged objective" "of nature," especially reference area. (internal quotation marks citation omitted). Third, "should considered methods." 523 Kleinfeld dissented. correctly identified legal question, 'the nature.' " (quoting McMullen INS, 591, 592 1986)). Given violent acts, fact large part directed civilians, "reasonably conclude[d] [his] crimes disproportionate objectives." F.3d, 525. II 14 initial matter, no disagreement phrase "serious §1253(h)(2)(C) weighing nature" act "common-law" "criminal" supra, 98; 18a; Deportation Proceedings Doherty, Op. Off. Legal Counsel 1, 23 (1989) (an 'should objective' ") 595), rev'd grounds, Doherty 908 1108 (CA2 1990), rev'd, 502 314 (1992). Nor basic inquiry. 15 conclude, however, must supplement test examining additional factors. course analysis, failed accord required level deference Because confronted questions implicating "an agency's construction administers," principles Chevron A. Inc. Natural Resources Defense Council, Inc., 837, 842 Thus, asked silent ambiguous issue" it; so, question [was] answer permissible statute." 843. also U.S., 448 449. clear scheme. INA administration enforcement" "determination ruling all controlling." 1103(a)(1) III). Section 1253(h), moreover, express terms confers decisionmaking authority General, making entitlement "determin[ation]" conditions met. 1253(h)(1), (2). recognized judicial Executive Branch appropriate context where officials "exercise sensitive functions implicate foreign relations." Abudu, 485 94, (1988). deem another nature, allow perpetrators States, affect relations neighbors. judiciary well positioned shoulder primary responsibility assessing importance diplomatic repercussions. 17 while retaining ultimate authority, vested power exercise "discretion conferred law" "considering determining cases it." 3.1(d)(1) Based allocation accorded gives "concrete process case-by-case adjudication" (though ultimately sustainable). us, follow erred. error clearest holding balance face Rodriguez-Coto, 209 210 (1985), "reject[ed] phras[e] 'serious crime' [§1253(h)(2)(C)] vary evidence persecution." text structure §1253(h) consistent conclusion. Indeed, words suggest reading statute, Appeals, one. plain language, obvious already-completed somehow less circumstance home ibid. ("We find modifie[r] 'serious' relate[s] itself"). important, too, Rodriguez-Coto points out, 210, aliens all, requires "life [the sought] opinion," i.e., By terms, thus independent consideration facing granting reasonable decide, done, factor can serious, crime. Though declined make findings respecting 18a, barred exception. effect, assumption could establish threat persecution. approach language statute. contrary conclusion balanced passage Office Nations High Commissioner Refugees, Handbook Procedures Criteria Determining Status (Geneva, 1979) (U. Handbook). U. guidance construing Act. 438 439, 22. explained "one Congress' purposes" passing implement agreed 1967 Protocol Relating Jan. 31, 1967, T. 6224, S. 6577 (1968), acceded 1968. 436 437. incorporates Articles 34 Convention 189 150 (July 28, 1951), reprinted T., 6259, 6264 6276. §1253(h)(1) parallels Article 33, "[n]o Contracting State expel ('refouler') refugee manner whatsoever frontiers territories Convention, incorporated Protocol, limits availability form relief; pertinent states "shall person whom there non-political refuge admission refugee." Art. I(F)(b), 6263 6264. Paragraph 156 Handbook, applying "it strike between offence presumed applicant degree feared." 21 useful interpretative aid, binding courts. "Indeed, disclaims explaining status 1951 incumbent whose territory finds himself.' 22 ¶(ii)). suggest, course, explanation force way binds "). given, think balancing rests fair Secretary Home Dept., All E. R. 865, 882 (H. 1996) (Lord Mustill) ("The either committed, character cannot depend consequences offender afterwards returned"). B Also relying held 'grossly objective.' 'more difficult accept' they involved 'acts ¶152, 36). suggested "cast[s] what [an] Citing affirming 1986), stated "[a] comparison suggests startling difference." reasoned "indiscriminate bombing, murder, torture, [and] maiming civilians," "only Guatemalans disruption use methods objectionable practiced us fall far short kind atrocities attributed associates." dispute these considerations gross disproportionality, atrociousness, comparisons previous decided fact, (which quoted Handbook) disproportion atrociousness determination. "[i]n 98. Counsel, 26, formulation purport provide comprehensive exception, full elaboration standard await cases, instruction system always takes discrete factual circumstances over time. ("[T]he recognizes involving arise myriad circumstances, constitutes susceptible rigid definition"). Our identifies (whether outweighs character) inquiries used rule: means ends, involved. approach, indication judgment, sought advance agenda means, fairly said predominate Commission therefore, will result denial element none deemed atrocious, however. reason, need give every 24 equate acts. Cf. 1253(h)(2)(B) (establishing dangerous convicted "particularly crime," defined include "aggravated felony"). reason equivalence common usage, word "atrocious" deed culpable aggravated Webster's Third New International Dictionary 139 (1971) (defining as, "marked given extreme wickedness [or] brutality cruelty"; "outrageous: violating bounds decency"; violence: savagely fierce: murderous"; "utterly revolting: abominable"). practical crimes, severe restrictions her though discerned §1253(h), themselves. 25 group's "manifested civilians" "were group's] strikes." atrocious. otherwise. 26 reject suggestion reversal compare facts McMullen. thought doing provided atrociousness. expressly silence ground reversal. C 27 third reversing "offenses relation declared objectives" discussed, 6, 15, relationship concluding violence destructiveness impact objectives. To extent believed "necessity" "success" 28 true 'close direct causal link purpose object.' quite events, explore beyond noting Whatever relevance inquiry lack more. Even connection, ends still render nonpolitical. Moreover, bore burden proving 208.16(c)(3) (1995) ("If indicates grounds preponderance apply"). submit point. rather cursory discussion warrant 29 Finally, contends record testimony contains errors. Spanish errors translation transcription. advanced argument Opposition Certiorari Court, having raise Appeals. decline late stage. 30 motion new 1a 6a. Should determine modification necessary, warranted. 31 32 withstand scrutiny. proceedings opinion. 33 ordered.

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