Document: 543 U.S. 335 JAMAv.IMMIGRATION AND CUSTOMS ENFORCEMENT No. 03-674. Supreme Court of United States. Argued October 12, 2004. Decided January 2005. Title 8 U. S. C. § 1231(b)(2) prescribes the procedure for selecting country to which an alien ineligible remain in States will be removed. Petitioner had his refugee status terminated a criminal conviction. When he declined designate preferred removed, Immigration Judge ordered him removed Somalia, birth, pursuant 1231(b)(2)(E)(iv). filed habeas petition challenge designation, claiming that Somalia no functioning government and thus could not consent advance removal, Government was barred from removing there absent such consent. The District agreed, but Eighth Circuit reversed, holding 1231(b)(2)(E)(iv) does require acceptance by destination country. Held: Section permits without country's government. Pp. 338-352. (a) provides four consecutive removal commands: (1) An shall choice (subparagraphs (A) (C)), unless condition eliminating command is satisfied; (2) otherwise citizen (subparagraph (D)), (3) with has lesser connection (E), clauses (i) (vi), including birth (clause iv)); or (4) if "impracticable, inadvisable impossible," another whose accept clause (vii)). Here, question whether Attorney General precluded petitioner under subparagraph (iv), because consented. 338-341. (b) In all requirement appears only (vii), fourth step process, may invoke after finding third inadvisable, impossible." Clauses through (vi) contain word about Including "another" (vii) import into (i)-(vi). Such reading stretches modifier too far, contrary "the grammatical `rule last antecedent,'" Barnhart v. Thomas, 540 20, 26. Subparagraph (E)'s structure refute inference derived antecedent rule. 341-345. (c) Nor manifest 1231(b)(2)'s structure. First, overlap between subparagraphs (D) (E) so complete as justify imposing at name preventing "circumventing" second step. Second, statute expressly countenances notwithstanding its objections. (C) first country-selection "may" refrain alien; discretion override any lack acceptance. Finally, existence imply must exist third. To infer absolute rule where Congress clearly set it forth would run counter this Court's customary policy deference President foreign affairs, necessary ensure appropriate consideration conditions since aliens facing persecution other mistreatment have number available remedies. 345-348. (d) Contrary petitioner's argument, "neither settled judicial construction nor one [the Court] justified presuming Congress, silence, impliedly approved," Powell, 379 48, 55, n. 13, most recent reenactment 1231(b)(2). 349-352. 329 F. 3d 630, affirmed. SCALIA, J., delivered opinion Court, REHNQUIST, O'CONNOR, KENNEDY, THOMAS, JJ., joined. SOUTER, dissenting opinion, STEVENS, GINSBURG, BREYER, joined, post, p. 352. CERTIORARI TO THE UNITED STATES COURT OF APPEALS FOR EIGHTH CIRCUIT. Jeffrey J. Keyes argued cause petitioner. With on briefs Kevin M. Magnuson. Malcolm L. Stewart respondent. brief were Acting Solicitor Clement, Assistant Keisler, Deputy Kneedler, Donald E. Keener, Greg D. Mack.* JUSTICE SCALIA Court. 1 found States, process prescribed case provision prohibits explicit, 2 * Keyse Jama born remains nation. He admitted refugee, 2000 reason See INS, 631 (CA8 2003). Naturalization Service (INS) brought action remove having committed crime involving moral turpitude. Ibid.; see §§ 1182(a) (2)(A)(i)(I), 1229a(e)(2)(A). administrative hearing, conceded subject although sought various forms relief determination (adjustment status, withholding asylum Nations Convention Against Torture Other Cruel, Inhuman, Degrading Treatment Punishment). citizenship. Board Appeals affirmed determination, did seek review Appeals. 3 Instead, instituted collateral proceedings statute, 28 2241, designation destination. Minnesota, alleging government, therefore agreed consented receive him, Civ. File 01-1172 (JRT/AJB) (Mar. 31, 2002), 10, App. Pet. Cert. 51a, divided panel 3d, 633-635. We granted certiorari. 1176 (2004). II 4 1231(b)(2), sets out General1 selected ordered, enacted follows: 5 "(2) OTHER ALIENS. — Subject paragraph 6 "(A) SELECTION COUNTRY BY ALIEN. Except provided "(i) described who been wants 7 "(ii) designates. "(B) LIMITATION ON DESIGNATION. (A)(i) territory contiguous adjacent island, island place native, citizen, subject, national of, resided in, designated island. 9 "(C) DISREGARDING disregard 10 fails promptly; 11 inform finally, within 30 days date inquires, country; 12 "(iii) willing 13 "(iv) decides prejudicial 14 "(D) ALTERNATIVE COUNTRY. If (A)(i), national, 15 inquires period time reasonable, 16 17 "(E) ADDITIONAL REMOVAL COUNTRIES.—If previous paragraph, following countries: 18 19 located port left 20 A before entered 21 born. 22 "(v) sovereignty over alien's birthplace when 23 "(vi) 24 "(vii) impracticable, impossible each subparagraph, 25 "(F) WHEN IS AT WAR.—When war inconvenient, subsection war, alien— 26 host exile permit entry; 27 recognized exile, country, political territorial subdivision very near or, country." Nationality Act, 241(b)(2), added Illegal Reform Immigrant Responsibility Act 1996 (IIRIRA), 305(a)(3), 110 Stat. 3009-600. countries (clauses (E)); "another country" (E)). choice, inapplicable. informed willingness obliged (iv) (E)) given 29 do lightly assume omitted adopted text requirements nonetheless intends apply, our reluctance even greater shown elsewhere same knows how make manifest. terminal finds options presented six are come first—in And those they merely direct alien" them. Effects attached nonacceptance throughout rest (2), making failure specify effect conspicuous—and more likely intentional. consequence selection process; step; step.2 respect step, however, directed move in" Nonacceptance surely factors considered determining impracticable give dispositive wishes. 31 seizes upon means importing (vi). argues resort alien," then enumerated also "countries governments alien." That far. Just Term, we rejected argument much like petitioner's, noting ran antecedent,' according limiting phrase ... should ordinarily read modifying noun immediately follows." (2003). There, referred claimant's "previous work" "any kind substantial gainful work exists economy"; antecedent, "which economy" term work." Id., 26-28 (emphasis deleted; internal quotation marks omitted); accord, FTC Mandel Brothers, Inc., 359 385, 389-390 (1959). treat other" "apparently connecting modifier" dissent here thinks be, 355.3 32 Each distinct ends period, strongly suggesting understood completely further.4 already noted, turn language find abandon fourth, option judgment This allows take both practical geopolitical concerns account (and accords similar flexibility pass inappropriate gives steps, infra, 13). Petitioner's abridge exercise Executive judgment, effectively deeming per se impossible" acceptance, though many cases—such one—it nothing sort. (Removing apparently involves than putting regularly scheduled flights Dubai Nairobi, accomplished times proceeding began. 36-40 (declaration detention enforcement officer Eric O'Denius).) Even consultation, well border absence hardly synonymous impracticability impossibility.5 B 33 contends explicit text, entire consent, reasons, circumventing limitation (E). rests two (D)) (C)).6 34 note initially point applies dissent's positions: "circumvention" requires selects three—here, (iv)—also citizenship disqualified alien. sometimes true, yet three always true. (Indeed, case, several describe Kenya, Somalia.) Despite imperfect overlap, impose removals three, cases step-three 35 fundamental defect appeals presumed uniformity premise false. It simply true specifies "may disregard" proves unwilling respond days. customarily connotes discretion. See, e. g., Haig Agee, 453 280, 294, (1981). connotation particularly apt where, here, used contraposition "shall": "shall remove" except potentially countervailing circumstances arises. examining reinforces inappropriateness mean "shall" (C): Would really wanted preclude took rather acceptance? (Subparagraph (C), unlike (D), offers "reasonable time" exception 30-day rule.) insists bar plausible way squaring insistence (C).7 36 final create structural stretch conclude obtain lacks ties citizenship, nativity, presence, on, implicitly required ties. Moreover, unable secure last-resort allowing little connection—if can him. none exists, removable-but-unremovable limbo Zadvydas Davis, 533 678 (2001), Clark Martinez, 371, announced presumptively released American society months. result obtains fails, every restrictions appear—particularly often afford realistic removal. 37 matters affairs. Removal decisions, destination, implicate relations powers" "changing economic circumstances." Mathews Diaz, 426 67, 81 (1976). avoid ruffle diplomatic feathers, prove futile. At empowered skip resists accepting alien, provide assurances guards allow entry. 38 order face remedies: asylum, 1158(b)(1); 1231(b)(3)(A); international agreement prohibiting torture, CFR 208.16(c)(4), 208.17(a) (2004); temporary protected 1254a(a)(1). These individualized determinations strike better balance securing inadmissible ensuring their humane treatment suggestion silence Mogadishu inevitably portends future justifies declining anyone Somalia. C 39 points what describes "settled construction" asserts provision, deemed incorporated law. think not. Neither congressional ratification met here: reenact change, supposed consensus broad unquestioned presume knew endorsed it. 40 new created fusion previously expulsion proceedings, "deportation" "exclusion." IIRIRA, 304(a)(3), 3009-589, 1229a. Our immigration laws historically distinguished "entered" still seeking enter (whether physically soil). Leng May Ma Barber, 357 185, 187 (1958). "The distinction carefully preserved II" (INA): expelling deportation proceeding, whereas admission achieved summary exclusion proceeding. Landon Plasencia, 459 21, 25-27 (1982) (cataloging differences proceedings). Aliens who, petitioner, allowed refugees revoked. 207.8 (1995).8 41 relies pertained INA's former 1253 (1952 ed.). ex rel. Tom Man Murff, 264 2d 926 (CA2 1959); Rogers Lu, 262 471 (CADC 1958) (per curiam).9 cited cases, Courts People's Republic China, nation relations, nation's prior Man, supra, 928 (reading cover well); Rogers, 471.10 During courts— decided Man—were refusing 1227 Menon Esperdy, 413 644, 654 1969). Likewise, amended expand list possible destinations—adding categories virtually identical current 1231(b)(2)(E)(vii), 1227(a)(2) (1982 ed.)—courts generally skeptical efforts back clauses. Walai 552 Supp. 998, 1000 (SDNY 1982); Amanullah Cobb, 862 362, 369 (CA1 1988) (Aldrich, concurring). But id., 365, (opinion Pettine, J.). 42 words, IIRIRA forged provisions, construed wishes.11 boils down decisions two-sentence curiam two, three. 471; 9, supra.12 context approved." (1964) (citation omitted). contradictory interpretation Appeals, authority flimsy contrary.13 43 44 For foregoing 45 ordered. Notes: Briefs ofamici curiae urging reversal International Human Rights Organizations et al. Jonathan Hafetz Lawrence Lustberg; Yusuf Ali Thomas Boeder Nicholas P. Gellert. Daniel Popeo Richard A. Samp Washington Legal Foundation amici affirmance. On March 1, 2003, Department Homeland Security Bureau Border assumed responsibility program. 2002, 441(2), 442(a), 116 2192-2194, 251(2), 252(a) (2000 ed., II). Accordingly, formerly vested now Secretary Security. 551(d)(2). Because occurred transfer functions, continue refer relevant decisionmaker constituting single (vii)'s covers subparagraphPost, 353, Clause exhausted; discrete, further process. separate immaterial: Step one, indisputably subparagraphs, belies theory steps precisely parallel subparagraphs. Indeed, "other" just words ofdifferentiation connection. Here serves tried conditional prologue ("If ..."). fact close earlier reference makes natural say "[a] outset 1231(b)(1)(C)(iv), "each subparagraph" comes later hence cannot serve "another." mountain molehill, 356-357. profound meaning changed legislation version. right," says, "in reducing amendment level whimsy." Post, 358. lays pre-1996 version beside version, numerous changes attributable stylistic preference. example: (E)(ii) law, reads States," embarked territory." U.S.C. 1253(a)(2) (1994 explain why these insignificant change momentous executive authority. By contrast, rebut inference, seepost, 354-356, cut way: appeared structurally discrete statutory end single, integrated list—for example, "`receives, possesses, transports commerce affecting commerce.'" Bass, 404 336, 337, 339 (1971); Standard Brewery, 251 210, 218 (1920); Verde Copper Co., 196 207, 213 (1905). dispute known fellows, refutes fellowship. below some form entry suffices. Brief Respondent-Appellant 02-2324 (CA8), pp. 43-46;Jama (D. Minn., Mar. 14, 54a. requirement, need contention do. misdescribe twoPost, 364, 10. heads Plain Language Of Statute Requires Acceptance Every Step," added), concludes description assertion "[t]he outer limit General's authority, circumscribes added); 19-20. incompatibility regard "unless" declines reasonable time. urges exceptions preserve General: longer hemay so. resolve affords residual discretion; enough demonstrate pervade claims, suffice limited contention. Rejection Government's essential, position, 365-368 —and proper resolution far clear. application made conviction, applied previously. 1159(a)(1) ed.) (a appear "inspection examination immigrant accordance [§ 1227, provision]" year entry). district director conducted Record 97, 99 (Exh. F). finding, subjected with" Lu involved 164 320, 321 (DC 1958). adhered positionPost, 359. rare exceptions, BIA follows law circuit individual arises, Matter K___ S___, I. & N. Dec. 715, 718 (1993); Anselmo, 25, 30-32 (1989). Thus, arising Second Circuit, (in dictum) court's decision Man. Linnas, 302, 306-307 (1985). controlled held contrary: "When designating deportation, preliminary inquiry addressed . ." Niesel, 57, 59 (1962) added). assertion,post, 361-362, descends solely is, respect, erroneous. sure, own exclusive descendant 1231(b)(1), placed arrival border, 1231(b)(1)(A), (c)(1), excludable paroled Whereas excluded deported, 1227(a)(1), 1253(a) ed.), chosen (b)(1). represent less latter. repeatedly intended substantive 361-362. view worked large change: Refugees expelled (under 1227), cannot. 8, supra. additional dicta dissent,post, 359, lend weight ratified construction. Dictum settles nothing, court utters merits, raises contention— to, by, Appeals—that impermissible central "country" uses term. certiorari phrased himself, "Whether 1231(b)(2)(E) obtaining removal." i. fairly include includes properly removable; decide issues today. Rule 14.1(a);Lexecon Inc. Milberg Weiss Bershad Hynes Lerach, 523 26, 42, (1998). 46 joined dissenting. 47 1231(b) destinations removable Paragraph governs place, issue once residence deported (for conduct while example).1 As latter, successive picking recipient himself designates 1231(b)(2)(A), (B) (C). step-one occurs, "is citizen" send 1231(b)(2)(D). names connection, (as resort) all. 1231(b)(2)(E).2 48 connections ("[t]he born," 1231(b)(2)(E)(iv)), resort, country," 1231(b)(2)(E)(vii). seventh, "government my seven; conclusion structure, history, legislative history I respectfully dissent. 49 remarks "[w]e apply." Ante, 341. Indeed not, covering "adopted text," governing seven choices says contains seventh 1231(b)(2)(E). (or, view, not) (E); authorizing 50 this, written differently, saying, "a simple drafting alternatives indicated intent attach instead naturally alluding common characteristic series, us draw straightforward designations selected, reasoned construing comparable language. (1920) ("The prohibitions extend use food products `beer, wine, intoxicating malt vinous liquor beverage purposes.' elementary act force meaning, course qualifying `other intoxicating' rejected. purpose inserting them intending due effect. intention beer wine phraseology quite superfluous, words" omitted)). 51 dodges thrust invoking confining receiving strictly third-step option, out. Under rule, (2003), quoted ante, 343. "whose modified mentioned preceding clauses, modifier, 52 confine willing-government (vii). "ordinarily," "can assuredly overcome indicia meaning. Barnhart, Over years, counseled against (often unanimously) least relied Nobelman Savings Bank, 508 324, 330-331 340, (citing 207 (1905)). accord applying option. 53 contrast "deportation," wording corresponding cognate deals explains, 349, amendments addressing gathered provisions dealing different varieties removal: called exclusion, "with whom [removal] initiated arrival," aliens. Exclusion sole here. 54 attention classes aliens, deportable. (vii)), 1231(b)(1)(C)(iv). differ important way, however. deportable speaks reads, territory," ("another" "a") paragraphs. readily identified, carries implication. 55 Although textual difference simultaneously address sense meant things usage, treats exactly same. doing so, "runs afoul usual `when legislature certain part another, assumes meanings intended.'" Sosa Alvarez-Machain, 542 692, 711, (2004) (quoting 2A Singer, Statutes Statutory Construction 46:06, 194 (6th ed. 2000)); Gonzales, 520 (1997) ("`Where particular section omits acts intentionally purposely disparate inclusion exclusion'"); Russello 464 16, (1983) ("We concluding differing subsections each. ascribe mistake draftsmanship"). Jama's contrasting interpretation, adopt, consistent Congress's words.3 56 long-held anything, stronger unmistakably deliberate. neutral providing suitable "to 1952, 243(a)(7), 66 (codified 1952 1253(a)); Internal 1950, 23, 64 1010 (nearly text). went trouble changing "any" "another," neither dismissed inadvertent discounted waste effort exchanging interchangeable modifiers. 57 right whimsy. doubt getting combine show mind. House (including country") H. R. Conf. Rep. 104-828, 216 (1996); 104-469, pt 234 (1995) (Judiciary Committee Report) (both describing "restat[ing]" provision). bring obviously line understanding deporting three.4 58 fits know outside Congress. early Learned Hand, squarely 1959). opinions position dicta. 365-366 J.); concurring) citing supra); Chi Sheng Liu Holton, 297 F.2d 740, 743 (CA9 1961) predecessor "provid[ing] territory" (internal confined courts, (E)(i)-(vi) requirement. 307 (1985) ("[T]he requires, require, `government' indicate `territory'"); cf. (BIA 1962).5 Government, seems survived up began attention, Justice Department's Office Counsel rendered (albeit directly 1231(b)(2)) stating attaches Memorandum Opinion Limitations Detention Authority 27, (Feb. 2003), http://www.usdoj.gov/olc/INSDetention. htm visited 7, 2004, Clerk file). today's fighting uphill tries authorities failed express rearranged statutes, cites ruling, Circuit's stated implied apply echoing Magistrate Judge, stressed point, saying fifty pages briefing, federal sanctioned legally him." 52a omitted).6 similarly "not case." fair chose suited understanding. 60 attempt undercut evidence founders fact. creating scheme "through `deportation' `exclusion.'" 349. According neutralizes expressed treatment, carried forward (E)(i)-(vi). "forged [one deportation], [on deportation] wishes," 351, unsound argue merged old laws. 61 goes wrong seen how. "removal" Calcano-Martinez 348, 350, places (indeed, subsection) Code. us, resulted merger provisions. (with few predecessor) compare 1231(b)(1)7 1227(a) tracks almost construed, then, "fusion" fragments subjects, unchanged helpful 62 responds descend situation used. 11. point. (laid sent considering requires. observation, covered Put simply, sections implementing regulations enlarged class irrelevant provides. 63 sum, significant helps law's requirements, Reports amending Text, support language, thence illuminates speak cross-reference confirms laying able circumvent lacking requirement.8 taken. 65 [at two] willing. anytime (the designee two) (E)(iv)), refusal precluding removes (E)(iv). route circumvention likewise open whenever, undoubtedly case), get around three: came (iii) countries.9 deflect objection, consensus, runs mistake. inaccurately characterizes general "subparagraph (D)." 346. answer restated (correctly) pointing unconditional stage three; imposes one. "may," 346-347. 67 (step one) feature "subparagraph[s] [and] (D)," 346, alone. power skirt.10 68 actually step-two "need (D)" 347, 7. resolve, evade nearly All muster response actual (an ascribes me) statement "other [unnamed] contention." Ibid. 69 joins Jama, claims evade. Secretary's mandate citizenship; discretionary forthcoming, insists, obligatory. unsound. 70 two. permission ignore alien: [Secretary] [an alien's] [of country] 1231(b)(2)(C). No grant [citizenship] ostensibly supplemented event satisfied. sounding tends non-acceptance; lines citizenship.11 Once again intent. 71 reject forthcoming consisted five subparagraphs) read: 72 "If [the] citizenship] finally advise months territory, necessarily giving priority preference herein [to listed (E)]." 243(a), 212. 73 lacked purposes because, mentioned, bill transformed intended. Given documented intent, together indication was. Koons Buick Pontiac GMC, Nigh, (rejecting asserted "scant indication" it). 74 consequently correct being nullified. III 75 ditch, "abridge th[e] judgment," 344, "run affairs," 348. (throughout brief) approach improperly Branch. Respondent ("[C]onstruing 1231(b)(2)(E)(i)-(vi) preserves traditional Branch case-by-case judgments relations"). itself significantly establishing detailed follow entirely appropriate, Constitution Art. I, cl. 4; also, e.g., INS Chadha, 462 919, 940 plenary 4, question"). Talk obscures nature task ought have, 76 reverse 77 APPENDIX OPINION 78 79 "(1) arriving 80 "Subject 82 "Except arrives [240] boarded vessel aircraft arrived 83 Travel 84 reside transported 85 Alternative 86 countries, 87 national. 88 89 residence. 90 opinionAnte, appendix Infra, 369-370. consisting subparagraphAnte, separated six, odd saw fit put scope "described subparagraph." difficulty taken four-step "`set[ting] progressive, three-step country.'" F.3d 633 2003)). takes go nonacceptance." 342. (Since separates (i)-(vi), easier undermine (i)-(vi) grounded (vii).) "[s]tep subparagraphs," 342, omitted), misses mark asserting `another' ."Ante, 343, 3. needed countries; ruled "[i]f step," 3, "rule[d] out," ibid., reflect already, note. There authority,"ante, 3; contrary. inLinnas "adher[ing]" precedent. never precedent, notable omission contrasted cites, discussion Board's honoring precedent explicit. 718-720 knocks enjoyed requiring consentAnte, 351. (1964), denied taking viewpoint, re Keegan, 746 1937)). Powell unanimity courts using discussed untenable "it true" [is] 346 select always, again, 2, subscribe acknowledging forthrightly nationality Tr. Oral Arg. state going [in (E)] subparagraph] departed resided, exercises born"). brief: "This proposed [Government] superfluous violate basic principle observed, `a invariably "subject, result, 1231(b)(2)(D) easily circumvented latter acceptance.'" alsoid., Ninth [circumvention] ruling noted respondent's upheld, refused person airdropped surreptitiously subparts three]" (second alteration original; heading isolated statements sections. 345, 6. based references advances alternative challenges: (E)(i)-(vi)) circumvented. Parties arguments forfeit either ignores argument. Both rely reasoning context, contending parts (E)(i)-(vi)Ante, 341 ("[O]ur requirement] manifest"); highlight 1231(b)(2)(E)(i)-(vi)"). discussed, course, misguided phrasing (E)(vii) (through "another") Notably, embraces opposite "accords steps. 344. Why "Congress [grant] manifest," 341, something mystery.

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