Document: 467 U.S. 407 104 S.Ct. 2489 81 L.Ed.2d 321 IMMIGRATION AND NATURALIZATION SERVICE, Petitionerv.Predrag STEVIC. No. 82-973. Supreme Court of the United States Argued Dec. 6, 1983. Decided June 5, 1984. Syllabus After he was ordered to surrender for deportation, respondent alien in 1977 moved reopen deportation proceedings, seeking relief under § 243(h) Immigration and Nationality Act 1952 (INA), which then authorized Attorney General withhold an upon a finding that "would be subject persecution" country would deported. The Judge denied motion without hearing, upheld by Board Appeals (BIA), held had not met his burden showing there clear probability persecution. Respondent did appeal this decision. Subsequently, 1981, after receiving another notice filed second reopen, again 243(h), meantime been amended Refugee 1980 conformity with language Article 33 1968 Nations Protocol Relating Status Refugees acceded States—to provide shall deport if determines alien's "life or freedom threatened" This also hearing same standard proof as applied previous denial. reversed remanded, holding no longer "a persecution," but instead could avoid "well-founded fear latter being contained definition term "refugee" adopted Protocol. court concluded so changed proof, respondent's entitled him new standard. Held: An must establish persecution 243(h). Pp. 413-430. (a) At least before 1968, it required demonstrate "clear "likelihood eligible withholding Relief not, however, available aliens at border refuge due They seek admission only 203(a)(7) INA, were good reason legislative history States' accession discloses President Senate believed consistent existing law. While source some controversy respect claims appear raise any questions concerning requests admission, "good employed such cases. 414-420. (b) text 1980, does specify how great possibility exist qualify extent can inferred from bare language, appears likelihood is required. section provides life "would" threatened, "might" "could" provisions which, Act, employ fear" now 201(a)(42)(A) INA Protocol's "refugee." Section refer 201(a)(42)(A). Hence, textual basis statute concluding well-founded-fear-of-persecution relevant amendment recognized Congress mere conforming amendment, added "for sake clarity," plainly intended change deportation. There support either 243(h)'s structure Appeals' conclusion every who qualifies statutory granted based on its understanding even properly understood, entitle 421-430. 678 F.2d 401, remanded. Kenneth S. Geller, Washington, D.C., petitioner. Ann L. Ritter, respondent. Justice STEVENS delivered opinion Court. 1 For over 30 years has possessed authority question presented case whether deportable order obtain 1952, 8 U.S.C. 1253(h) (1976 ed.), 203(e) Pub.L. 96-212, 94 Stat. 107. 2 * Respondent, Yugoslavian citizen, entered 1976 visit sister, permanent resident residing Chicago. Petitioner, Naturalization Service (INS), instituted proceedings against when overstayed 6-week period admission. admitted agreed depart voluntarily February 1977. In January 1977, married citizen obtained approval visa petition behalf. Shortly thereafter, wife died automobile accident. automatically revoked, petitioner Yugoslavia. 3 August provided: 4 "The within account race, religion, political time deems necessary reason." ed.). 5 Respondent's supporting affidavit stated become active anti-Communist organization marriage early father-in-law imprisoned Yugoslavia because membership organization, feared imprisonment return 6 October 1979, conducting evidentiary hearing.1 (BIA) action, explaining: 7 "A Motion claim contain prima facie evidence directed individual See Cheng Kai Fu v. INS, 386 750 (2 Cir.1967), cert. denied, 390 1003, 88 1247, 20 (1968). Although applicant here indicate will singled out persecution." App. Pet. Cert. 34-35. judicial review 9 reopen.2 He sought pursuant then—because 1980—read follows: 10 . threatened nationality, particular social group, opinion." 1253(h)(1). 11 additional written material submitted motion, like first, hearing. shown unavailable first and, further, still failed submit "there individually.3 Thus, regarding notwithstanding intervening 1980. 12 Second Circuit remanded plenary different proof. Stevic Sava, 401 (1982). Specifically, demonstrating adhered since 1968. satisfy abandon substitute Other than stating "considerably more generous" "somewhat former standard, id., 405, 406, detail differences between them unwise attempt detailed elaboration applicable legal test Protocol," 409. 13 Because importance presented, conflict Circuits question,4 we certiorari, 460 1010, 103 1249, 75 479 (1983). We reverse hold II 14 basic contentions parties may summarized briefly. Petitioner contends words are self-explanatory read light their usage courts prior adoption obvious "significant" difference them. If them, argues Congress' intent enacting maintain status quo, mean continued application clear-probability-of-persecution claims. regard, maintains our express "understanding" alter "substance" immigration laws. 15 standards coterminous turns almost entirely state mind. points well-founded-fear refugee basically ever should have claims, simply honor failing enact implementing legislation until contains refugee. 16 Each party correct one regard: adopt reference pre-existing sources begin analysis examining those III Law 17 Legislation enacted 1950,5 1952,6 19657 otherwise (1964 E.g., 750, 753 (CA2 1967), (1968); Lena 379 536, 538 (CA7 1967); re Janus Janek, I. & N. 866, 873 (BIA 1968); Kojoory, N.Dec. 215, 220 1967). With certain exceptions, already "within States," albeit unlawfully 18 generally Leng May Ma Barber, 357 185, 78 1072, 1246 (1958). Since 1947, refugees borders taken form 19 "immigration naturalization policy preferences 'displaced persons,' 'refugees,' persons fled areas world 'persecution opinion.' through implemented 1947 slightly time, remained constant—to haven homeless fulfill American responsibilities connection International Organization Nations." Rosenberg Yee Chien Woo, 402 49, 52, 91 1312, 1314, 28 592 (1971). Most significantly, 1153(a)(7)(A)(i) permit "conditional entry" immigrants number fleeing Communist-dominated area Middle East "because 212(d)(5) 1182(d)(5) (granting discretion "parole" into temporarily emergency reasons). Compare Tan, 564, 569-570 Ugricic, 384, 385-386 (Dist.Dir.1972).8 21 Refugees, Jan. 31, 1967, [1968] U.S.T. 6223, T.I.A.S. 6577. bound comply substantive Articles 34 Convention 189 U.N.T.S. 150 (July 28, 1951)9 "refugees" defined 1.2 22 defines 23 "owing well-founded persecuted reasons group opinion, outside nationality unable or, owing fear, unwilling avail himself protection country; who, having habitual residence, it." 6225 6261 24 Two germane issue us. 33.1 provides: "No Contracting State expel ('refouler') manner whatsoever frontiers territories where U.S.T., 6276. pertinent part: far possible facilitate assimilation refugees. ." Ibid.10 25 largely many statements effect S.Exec.Rep. 14, 90th Cong., 2d Sess., (1968) ("refugees long enjoyed rights protocol calls for"); ("the meets Protocol"); see also, 2; S.Exec. K, III, VII 114 Cong.Rec. 29391 (remarks Sen. Mansfield); 27757 Proxmire). And "absolutely clear" "requir[e] admit categories numbers aliens." supra, 19. It apparent law reconciled administration require modification language. See, e.g., VIII. Law: 1968-1980 26 Five Protocol, confronted confronting us today Dunar, 310 (1973). deportee argued persecution, essentially maintained conjectural suffice make "well founded." rejected interpretation founded," Id., 319. observed neither nor used fear," stated: 27 "Article speaks terms threat five enumerated reasons. Such threats constitute subjection purview construed encompass economic sanctions sufficiently harsh freedom, Dunat Hurney, 297 744 (3 Cir., 1962); cf. Kovac 102 (9 1969). estimation, substantial coverage 33. satisfied distinctions terminology case-by-case consideration they arise." 320. effected changes way coverage, arriving decisions," 323,11 Dunar "the persecuted. Even apply nomenclature 33, show threatened," 324. 29 consistently clear-probability cases.12 Seventh Circuit, applying "cases frequently cited decided (1967), reached adherence Kashani 547 376 (1977). Swygert reasoned founded "only objective evidence," "in practice converge" probability" previously "engrafted onto [§] 243(h)." 379. Courts appeared reach conclusion. Fleurinor 585 129, 132, 134 (CA5 1978); Pereira-Diaz 551 1149, 1154 (CA9 1977); Zamora 534 1055, 1058, 1063 1976). Dec., 385-386.13 IV 31 Protocol.14 made three none these expressly governs implicitly standard.15 makes mention short, To provision, required.16 literally deported; Finally, both "refugee"; rather, set forth. 32 understandably rely specific position entitles Instead, provision eliminated ideological geographical restrictions expanded version 101(a)(42)(A) 1101(a)(42)(A). amended, preferential status, numerical limits, qualifying modified definition17 renders limited class refugees, though broader definition, discretionary grant asylum.18 provisions, explicitly appearing 101(a)(42)(A). Rather, establishing Before ascertain nevertheless observe itself vigorously contest 35 Initially, do think serious dispute meaning law.19 likely argument point just defined, generous alien. 36 considered positions several amici curiae somewhat amorphous. seems founded" establishes reality fear. imaginary—i.e., all A moderate situation established evidence, need probably result enough reasonable possibility. 37 seem agree passage actually That is, merely falling short probability. using interchangeably phrase probability." agrees substance, although cases misconstrued 38 purposes analysis, assume, concluded, identify practice. 39 principal motivation enactment desire revise regularize procedures governing States. primary indeed view case, eliminate piecemeal approach 108 regulations, systematic scheme resettlement S.Rep. 96-256, p. (1979) (S.Rep.); U.S.Code Cong. Admin.News 141; H.R.Rep. 96-608, pp. 1-5 (H.R. Rep.). adopted, indeed, upon, "refugee," S.Rep., 19; H.R.Rep., 9-10, 9, 20. recognized, "merely comes guarantee Committee create means entry, regularizes formalizes policies practices followed recent years." 10. distinguished grants asylum entitlement met. 17-18.20 40 Elimination geographic thought bring obligations 4, 15-16,21 references always, ambiguity history—the "asylum," particular, various ways, see, 16—but understandable given problem evident well. Lam, Interim 2857, (BIA, Mar. 24, 1981). Going substance matter, understood alone 16. 17-18. 41 decision rests mistaken premise find history.22 42 deliberately avoided beyond noting requires supported specified grounds. familiar authorities reviewing courts, intend shortly explained: "As quite recently acquired jurisdiction beginning resolve problems caused addition jurisdiction, including determining exactly fit together." n. Today deciding remains decide regulations asylum. case. 43 Our does, course, reexamine record determine proper 44 judgment reversed, cause further opinion. 45 ordered. Judge's restricting favorable exercise sanctioned (Lena Service, 536[,] (7th Cir.1967). subjected court." Brief 6-7. respond notice; moreover, apprehension, unsuccessfully tried escape custody. These events gave rise habeas corpus raising separate issues now. BIA stated, "Accordingly, CFR 3.2 discovered "In addition, conclude deported Matter McMullen, Decision 2831 instant journalistic articles general nature, referring conditions Yugoslavia, specifically relating affidavits petitions file, while returns facts. direct link activities "With regard allegation Albanian ethnics Gnjilane, nothing stop going town feel hometown. [sic], city province. Lavdas Holland, 235 955 Cir.1956); Cantisani Holton, 248 737 (7 Cir.1957)." 30a-31a. Rejaie 691 139 (CA3 1982), Reyes 693 597 (CA6 1982) (relying review). Subversive Activities Control 1950 1917, rewrite add 20(a) provided part physical 64 1010. 66 214. "(f) striking 'physical persecution' inserting lieu thereof " 10, 79 918. revised 1965 quoted text, 410. Notably, during judges 203(a)(7). rested District Directors. signatory itself. 32.1 lawfully territory save grounds national security public order." 6275. plain invoke 32, Economic Social Council, Report Ad Hoc Statelessness Related Problems 47 (Mar. 2, 1950) (U.N.Doc. E/1618/Corr.1; E/AC.32/5/Corr.1) ("The expression 'lawfully territory' throughout draft exclude stay violated other condition attached stay"); Problems, Session 11, ¶ (Aug. 25, E/1850; E/AC.32/8). Accord, 310, 315-318 1973) (citing authority). made. 321-322. 132-134 1978) ("well-founded Judge; "likelihood" "probable court); Martineau 556 306, 307, 1977) (" 'clear probability' persecution"); Henry 552 130, 131-132 ("probable "reason "well-grounded fear"); Coriolan 559 993, 997, lives Board); 1058 1976) ("likelihood court, Daniel 528 1278, 1279 ("probability Paul 521 194, 200, 1975) Gena 424 227, 232 1970) ("likely persecuted"); 102, 105, 107 1969) "likelihood"); Williams, 697, 700-702, 704 1979) 'probable Francois, 534, 539 threatened"); Mladineo, 591, 1974) Maccaud, 429, 434 ("reasonable Bohmwald, 408, 409 persecution"). altered use 212(d) parole Moreover, 1974, General, acting 1103, published permitting applications INS Director consul. 108.1 (1976). application, denial "shall preclude alien, subsequent expulsion benefits Refugees." 108.2 request commencement completion respectively, "under §§ 108.3(a) (1980). conferring time. rejection consul "preclude Refugees," (1980), judged likelihood-of-persecution 108.3(a), 108.3(b), 242.17(c). 411, 416-417. (1) substituted mandatory what making finding; (2) requirement "alien's (3) broadened causes "of religion opinion" "nationality" "membership group" removal General's requisite degree certainty relates consequences meeting might third needs contra, infra, 425-428, indicates diminution established. Notwithstanding regulation substantively same: "has satisfying special inquiry officer .," 242.17(c) (1983), Appeals, continues Under 207, may, overseas immigrate ground 101(a)(42). 1157. year residence successful reinspection, attain 209 Act. 1159. 208(a) "asylum." 1158(a). 208(a), asylum, meet 101(a)(42)(A), 207. Meeting asylum—the 208(a). repealed, promulgated 208 Those statute, 208. 208.5 note institution requests" 208.3(b) (1983) (emphasis supplied). speak issue; eliminates filing regulations. Indeed, barred asserting allowed 208.11 "likelihood"; word "clear" surplusage. merit suggestion convincing" issue. Addington Texas, 441 418, 423-425, 99 1804, 1808-1809, 60 323 (1979). clear-and-convincing Government proceedings. Woodby 385 276, 87 483, 362 (1966). House Judiciary "Asylum Withholding Deportation "Since incorporates 1951 U.N. seeks insure fair humane treatment contracting states. Convention, prohibits states expelling returning her Amendment conforms two provisions: "(1) Asylum.—The Federal "Currently, governed (see 108), administer enforce laws immigration. No currently exists. basis. wishes workable country's tradition welcoming oppressed nations international law, feels desirable domestic include legislation. "(2) Deportation.—Related implementation authorizes where, "Although administrative decisions accord desirable, clarity, conform Convention. prohibiting, proposed clearly reflects agreements." 17-18 Committee, bill improving clarifying physically present changed; continue November [1968]." 149. Nor construction inconsistent Existing attaining essential assert right protected freedom" threatened. scheme, hand, "persecuted," seemingly concept freedom." because, example, Cf. 57, 1316, procedural safeguards well, represented counsel review. status. course virtually mirrored definition. limitations limits Protocol—the all, exercising among classes whom admit. called possible; precatory self-executing. led believe work law; most significant whereas naturally accommodate each made, hence necessary. 1968—e.g., groups, well Given considerable administrator possesses interpreting once again, "refugee's threatened", "persecution." argue "persecution" broad matters freedom"—deprivations property, example—and therefore narrower section, perceive interest summary, then, practice; necessarily require, requirements modifying As Secretary correctly explained Protocol: "[F]oremost prohibition (under Convention) article comparable regulations." VIII

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