Document: 514 U.S. 386115 S.Ct. 1537131 L.Ed.2d 465 Marvin STONE, Petitionerv.IMMIGRATION AND NATURALIZATION SERVICE. No. 93-1199. Supreme Court of the United States April 19, 1995. Syllabus * In 1988, an Administrative Law Judge ordered petitioner Stone deported. The Board Immigration Appeals (BIA) affirmed on July 26, 1991, and denied Stone's motion to reopen and/or reconsider deportation in February 1993. Shortly thereafter, he petitioned for review both reconsideration orders. court dismissed petition want jurisdiction extent that it sought underlying determination, holding filing did not toll running 90-day period final orders specified § 106(a)(1) Nationality Act (INA). Held: A timely a BIA decision does 106(a)(1)'s period. Pp. __. (a) parties agree order becomes upon BIA's dismissal appeal started run this case 1991. It is also clear Hobbs Act, which Congress has directed governs orders, embraces tolling rule: renders nonfinal purposes judicial review, ICC v. Locomotive Engineers, 482 270, 107 2360, 96 222. That conventional rule would apply had using govern without further qualification. (b) However, instead 10 exceptions use procedures, one decisive here. Section 106(a)(6), added INA 1990, provides whenever seeks under 106, "any with respect or such shall be consolidated order." By its terms, 106(a)(6) contemplates two petitions directs courts consolidate matters. direction order, other way around, indicates action remains active pending before court. Were render nonfinal, there be, normal course, only filed hence nothing judiciary consolidate. Since appears no-tolling give rise separate simultaneously courts, plain contemplates, seem gives meaning section. (c) Petitioner's construction 106(a)(6)—which presumes if but finality unaffected after review—is unacceptable. implausible direct different results circumstances. Moreover, presumed intends amendment statute have real substantial effect, yet petitioner's consolidation provision effect rarest (d) Underlying considerations administrative efficiency, as well fairness alien, support conclusion intended depart from cases. While automatic stay, agency not. might wished impose aliens Hobson's choice petitioning at risk immediate foregoing obtain stay. addition, rule's policy delayed odds Congress' fundamental purpose enacting was abbreviate process prevent forestalling by dilatory tactics courts. (e) consideration analogous practice appellate district judgments confirms correctness Court's language. relief judgment more than days Federal Rule Civil Procedure 60(b)—the closest analogy here—does affect court's judgment. If taken, time take appeal; notice appeal, divested. Each proceedings can consolidated. post-trial tolls afterwards, divests jurisdiction. Thus, all matters are reviewed. contrast, hybrid suggested dissent—that original made afterwards—has no analogue court-district context. 13 F.3d 934, (6 CA.), affirmed. KENNEDY, J., delivered opinion Court, REHNQUIST, C.J., STEVENS, SCALIA, THOMAS, GINSBURG, JJ., joined. BREYER, dissenting opinion, O'CONNOR SOUTER, Alan B. Morrison, Washington, DC, petitioner. Beth S. Brinkmann, respondent. Justice KENNEDY Court. 1 We consider whether Naturalization Service's seeking decision. 2 Petitioner, Stone, citizen Canada businessman lawyer profession. He entered 1977 nonimmigrant visitor business since remained States. 3 On January 3, 1983, convicted conspiracy mail fraud, violation 18 U.S.C. §§ 371 1341. served months 3-year prison term. March 1987, his release, INS him show cause why should deported who beyond authorized law. series hearings, ALJ concluded regulations when States, alien visa could remain country initial exceed six privilege extensions, granted 6-month increments. 8 CFR 214.2(b) (1977). 1251(a)(2) (now 1251(a)(1)(B) (1988 ed., Supp. V)) based testimony any extension. application suspension 1254(a)(1), concluding conviction fraud 18-month incarceration barred him, matter law, establishing "good moral character" required 1254. See 1101(f)(7). 4 appeals were follows: appealed Appeals, ALJ's determinations 1991; "Motion Reopen Reconsider" August 1993, some 17 later, frivolous. 5 Judicial next. record precise date, but, sometime Sixth Circuit denying reconsideration. determination. held 938-939 (CA6 1994). certiorari resolve conflict among Circuits question, compare Akrap INS, 966 F.2d 267, 271 (CA7 1992); Nocon 789 1028, 1033 (CA3 1986) (agreeing statutory limit order), Fleary 950 711, 713 (CA11 Pierre 932 418, 421 (CA5 1991) (per curiam), Attoh 606 1273, 1275, n. 15 (CADC 1979), Bregman 351 401, 402-403 (CA9 1965) (holding within following disposition timely-filed motion), 511 ----, 114 2098, 128 661 (1994). now affirm. II A. 6 (INA) specifies "a [of order] may later 90 date issuance or, aggravated felony, 30 1105a(a)(1) V). clause pertaining "aggravated felony" factor analysis, offense being defined 1101(a)(43) benefit full There dispute "become[s] Appeals," 243.1 (1977), and, agree, 7 disagree, however, regarding order. Petitioner contends denial (as was) denial. argues reviewability reopen. view considered timeliness where agency's 222 (1987). Interstate Commerce Commission's governing provided that, certain exceptions, governed 28 2341 et seq. U.S., 277, S.Ct., 2364-2365. "the stayed Act's limitation until been acted Commission." Id., 284, 2368. Our conclusion, we acknowledged, tension language permits aggrieved party "within 60 [the] entry" 2344, 49 10327(i), "which '[n]otwithstanding' authorizing Commission (§ 10327(g)), 'an . served, civil enforce, enjoin, suspend, set aside date.' " 2368-2369. found controlling similar corresponding (APA), 704, "agency otherwise section [entitled 'Actions Reviewable'] presented determined form reconsideratio[n]"—"language [that] long construed merely relieve requirement rehearing actually rendering nonfinal." supra, 284-285, 2369. 9 longstanding APA language, cited dicta earlier cases, American Farm Lines Black Ball Freight Service, 397 532, 541, 1288, 1293-1294, 25 547 (1970); CAB Delta Air Lines, Inc., 367 316, 326-327, 81 1611, 1619-1620, 869 (1961), Outland CAB, 284 224, 227 1960), approval Delta. justified treating during pendency terms economy: "[W]hen elects seek always possibility complained will modified unnecessary." Outland, 227. As Engineers embrace review. consequence, final, implicit cannot concluded. K. Davis, Treatise 26:12 (2d ed. 1988). Transportation Union ICC, 871 1114, 1118 1989); Bellsouth Corp. FCC, 1487, 1489-1490 Indeed, those so held. Fleary, F.2d, 711-712 (deportation reviewable reopen); Hyun Joon Chung 720 1471, 1474 1984) (same). 11 106 "[t]he procedure prescribed by, provisions chapter 158 title 28, to, sole exclusive for, deportation. ." 1105a(a) IV). reference Title Act. light our used qualification, follow so-called applied. 12 proffers reading Engineers. Relying statement 704 "not nonfinal," 285, 2369 (emphasis supplied), understands forth default agencies choose depart. turned theory, question arise subject either authority specify affected reconsider. Both congressional enactments, alter modify their particular agencies. conclude amending chose ordinary treatment B 14 procedures except qualifications. 1105a(a). Two pertinent. first, contained INA, (30 felony), 60-day 1105a(a)(1). second exception amended 1990. provides: "[W]henever section, 16 words do permit us say reopening dislodges proceeding reviewing statute, fact, around. This best understood reflecting intent part reviewed fashion issuance, irrespective itself, reconsideration, single proceeding, far, least, all. 280, 2366-2367. Ninth Circuit, 1990 just review: "Congress visualized questions relating alien's raised resolved, followed Yamada 384 214, 218 1967). hard square existence proceedings. Under rule, exist course. An issued, motion, Upon file Because 19 Although mention tolling, see post, ____ (BREYER, dissenting), logical consequence scheme nonfinality motion. Engineers' necessary about finality. Finality antecedent speaks volumes. All envisions dissenting). "final order[s]" reviewed, 1105a(a)(1), follows necessity requires operation rendered nonfinal. speaking finality, quite bit tolling. 20 Recognizing problem, oral argument offering version what often occur. envisioned while still pending, went back new evidence arisen, reopening. If, reopening, dissent relies same assumed state events. ____. 21 construct, premised inconsistent himself proposes. advocates, lack wonders how retains because delays motions supporting rule—that "when unnecessary," 227—applies equal force District Columbia whose years Wade 986 1433, 1434 1993) curiam) ("The danger wasted effort arises before, simultaneous with, review") (citations omitted). rested on, consistent somewhat context 59 amend strips jurisdiction, appeal. Griggs Provident Consumer Discount Co., 459 56, 61, 103 400, 403-404, 74 225 (1982) curiam). decision, Fed.Rule App.Proc. 4(a)(4), noted "theoretical inconsistency" permitting retain decide "adequate beginning process." Griggs, 59, 402. 22 need confirm neither go out incorrect, do. inconsistency Griggs. assumes day At rate, 23 When acts presume effect. Reiter Sonotone Corp., 442 330, 339, 99 2326, 2331, 931 (1979) (Court must construe possible, every provision); Moskal 498 103, 109-111, 111 461, 465-467, 112 449 (1990) Had proceed manner agencies, argue, reason included provision. reasonable enacted exception, already existing rule. explicit general applicability creating conclude, F.3d, 938, Seventh Akrap, 271, inserted expectation apply. C 24 Deportation self-executing dependent enforcement. accounts stay mechanism, providing service stays absent contrary felony status. 1105a(a)(3). preserving court, refrain "nothing [Judicial exclusion] require Attorney General defer right section." 1105a(a)(8) And serve 3.8 Cf. 325-327, 1619-1620 (certificate public convenience effective issued though motion). 26 here, face choice: deportation, forego consequences unlike contexts. Once deported, order's validity. 1105a(c). alien. 27 avoid argument, habeas corpus solution dilemma. Even assumption available, (Exclusiveness procedure), unsatisfactory. evaluating applications assess probability prevailing turning into collateral previews eventual review—indeed preview implicating appeals. inviting duplicative multiple frustrate, rather promote, stated goal economy. From even standpoint, policies adopting INA. reflects preference postpone ensure completion process. Reconsideration eliminate intervention, resultant saving resources ought diminished premature adjudication. "fundamental purpose" "to frustrate practices whereby persons departure courts." Foti 375 217, 84 306, 311, 281 (1963). concern reflected reality "in matter, delay works advantage deportable wishes States." Doherty, 502 314, 321-325, 719, 724-725, 116 823 (1992). then expedite initiation purpose. 29 principal amendments redress related problem successive frivolous motions. Pub.L. 101-649, 104 Stat. 5048, took five steps reduce these abuses. First, promulgate limiting number file. 545(b). Second, instructed specifying maximum motions, hinting 20-day appropriate. ibid. Third, cut half 180 days. Fourth, define "frivolous behavior attorneys sanctioned" connection ibid., 545(a). dissent's view, fifth measure, provision, apparent bears relation time. plausible first four solve fifth—the provision—was solution, step direction. envisioning eliminates much incentive meritless like adopted time, expedites begins. D INS' discretionary 60(b) (at least judgment, discussed below), appealability comparable With noted, taking Civ.Proc. 60(b); C. Wright & Miller, Practice 2871 (1973) (Wright Miller), continuity prior-taken last power grant relief. Standard Oil Co. Cal. 429 17, 18-19, 97 31, 31-32, 50 (1976) curiam); 2873 (1994 Supp.). litigant faced unfavorable allotted 4, files (where judgment). Either appealable each respects, litigants is, construction, identical BIA. post-decision filed. 31 For reasons relevant 1991 Rules Appellate provide 4(a)(4)(F). list includes 4(a)(4)(C). rules revealing. followed, qualified, interpreted express divest taken. 32 undermines reliance presumption once asserted divested trial level. most concerned. 4(a)(4) (specifying majority post-judgment existed). enumerated typified after, conjunction posttrial pends 33 short, evince coherent taken (thus appeal), divesting jurisdiction). Other (no tolling), afterwards (appellate divested). Motions reviewed; E 34 colleagues To applies, compelled afterwards. suggests contrary, observed, uniform principle concerned produce two. familiarity types above, difficulty practicing announce today, practitioners devise meaning. 35 worthwhile pausing many reconcile prefers. briefing, disrupt law overturning circuit experience decisions (the Circuit), thereby resolving split briefing argument. avoids extraordinary steps. creates parallel firm position applies 36 But import concomitant addressed Wade, sense secondary point dissent. context, whereas itself stating ____, deliberate add challenge not, then, work explains trouble it. any, rare instances And, important, account course include "except" F 37 Whatever assessment instance, sure, preferable spoken greater clarity. provisions, jurisdictional nature strict fidelity terms. explained: 38 "Section 106(a) exclusively prescribe regulate portion federal precision expressed wishes." Cheng Fan Kwok 392 206, 212, 88 1970, 1974, 1037 (1968). 39 true timing limits are, stated, "mandatory jurisdictional," Missouri Jenkins, 495 33, 45, 110 1651-1660, 109 (1990), equitable 26(b). 40 41 understanding reviewable, issued. Its subsequent chooses, issuance. Where petitions. 1105a(a)(6). 42 lacked 43 44 ordered. 45 whom SOUTER join, dissenting. 46 reads (INA), V), legal interaction (1) (2) my create exception. risks unnecessary complexity technical, adverse reasons, I 47 (1987), between wants (which call "agency/court" appeal). resembled takes place "court/court" appeal) namely soon entry 4(a)(4). (commonly called Act) said entry." 2344. concluded, basis precedent, proper 279, 2366. "be denied." Ibid. id., 48 interpret calling thing, Like explicitly; simply says 106(a)(1), More importantly, explicitly states "procedure [the seq.] deportation." 106(a), phrase conclusive several subsection setting "[t]ime [a] petition" But, latter lies permitted filing—90 opposed Nothing three 545(b), 5065) Finally, interpreting consistently makes easier bar understand, follow, highly technical rules. rules, non-immigration-specialist (say, working agency/court context) less likely lose client's through inadvertence. reaches believes 51 "whenever [ ] [a deportation] 1105a(a)(6) 52 "consolidation" subsection, address, way, review; happen reviews make separately docket (i.e., they consolidated). legislative history likewise silent matter. See, e.g., H.R.Conf.Rep. 101-955, pp. 132-133 (1990). Given seems unlikely consciously created significantly approach review-deadline/reconsideration-petition (with consequent confusing lawyers) indirect manner. 53 Nevertheless, normally lead petition, place. majority's never find properly together reason, "consolidate" statute. opposite (one denies tolling) would, sometimes (simultaneously) (if decided, "no-tolling" therefore appeals, ready consolidation. concludes infer legally meaningful. 54 believe necessary, special meaningful, Consider case: enters Day Zero. 50. Circumstances suddenly change—say, home —and 70 agency. (The "must be" "rare" happening, ante, __, why. New circumstances justifying situation frequency, expressly recognize sought. 3.8(a) (1994) (requiring validity reopened been, proceeding)). 100. 110. case, appeals: tells them together. (In informed 70, unless thought stalling device, postponed merits awaiting Gebremichael (CA1 (decision resolved reconsideration; rehearing)). example, "exception" cf. reviews. 55 counterexample, rejects it, fear conceptual precedential problem. Neither perceived problems, significant. fears fact deemed "final" (but not-yet-appealed) "nonfinal" Hence, finally decides petition. counterexample above (a order) "nonfinal," appealable, removing leaving 56 answer "general principle" "jurisdiction, vested, divested, although things arrive exercised." Little Charles, F.Cas. 979, 982 (No. 15,612) (CC Va.1818) (Marshall, Justice), quoted Republic Nat. Bank Miami 506 113 554, 558, 121 474 (1992) (slip op., 5). 50, reached conceptually speaking, later-filed having "divested" practically leave there, dictate depending expended prosecuting deciding After all, recognized inherent control causes economy counsel, litigants." Landis North 299 248, 254, 57 163, 166, L.Ed. 153 (1936); 1367(c)(3) V) (providing may, decline exercise supplemental over claim claims curiam ), court/court caused earlier-filed 'self-destruc[t],' 403, despite "vested" "jurisdiction." "self-destruct," (on 100). 58 specific Procedure, "self-destruction." of, say, "notice [e.g., motion] effect." context; knowledge, applicable contexts one. absence adds "district judgment," 60, 403 added)—as "self-destruct" ); Losh Brown, Vet.App. 87, 89 (1993). Berroteran-Melendez 955 1251, 1254 1992) (court review); Lozada 857 10, 1988) retained notwithstanding reopen, abeyance observation: attends appeal." omitted) (referring ruling change appealed, mooting wasting expended). observation enough, justify fails important factors, generally cases completed appeals) weigh against stripping point, significant Rules, revise few (10 days). us, (or reopening) BIA). also, 2.734(a)(1) (1995) (Nuclear Regulatory untimely "grave issue" raised). difference means "self-destruction" interrupt (and waste) underway. Consequently, assume ultimately Ante, __,__. avoided. basic argument—that deprive meaning—depends supported rule-based authority. 61 complicated, help. losing (60, Government party). 4(a)(1). distinguish kinds motions: (including 60(b)), (in main, motions), sort "immediate" previously "self-destructs." "distant" valid. complex system, lawyers refer understand supposed 4(a) therein). 62 Agency (Petitioner appeal.) (for purposes) read immigration matters, possible ways: Rules-type distinctions; analogizing tolling); (3) tolling). 63 appropriate Committees, Those bodies focus directly limits; similarities differences appeals; relevance special, immigration-related circumstances, automatically 106(a)(3), 1105a(a)(3) (that majority) serious unfair loss (thereby multiplying complexity). incorporates text purport third possibility, three, promotes uniformity agencies; adopts; helps inadvertent 64 upshot various practical argue interpretation (when filed), continue prior reconsideration). "Hobson's choice" obtaining 1105a(a)(3)), entrapping unwary immediately thinking 65 undermine expediting deportation-order reconsider, so. frivolous, delay, attention. quickly. acting here) act check (without solely delay. 66 majority, parties, contrast nontolling court-efficiency delay-related aspects. balance, strongly side other. (adding, things, subsection) hope diminish delays. ways achieving objective. 545(a), 5063 (creating 242B(d), 1252b(d), directing issue summary attorney sanctions appeals); 545(b)(1) (reducing days); 545(d)(1) (directing motions); 545(d)(2) appeals). Significantly, antitolling ways. measures apparently designed efficient. (asking order; reply briefs; identifying items last-mentioned 67 authorizing, situation, roughly asked [an Judge's [to BIA] Stat., 5066 added). response, proposed regulation saying, "[a] remand appeal] Judge. Such [later] Board. Fed.Reg. 29386, 29388 (proposed 3.2(c)(4)). Fed.Reg., 29387 3.2(b) (parallel reconsider)). approach, concerning 68 One point. regulations, (1994), which, says, interprets eliminating Shalala Guernsey Memorial Hospital, ---- - 115 1232, 1236-1237, 131 6-7); Chevron U.S.A. Inc. Natural Resources Defense Council, 467 837, 843, 2778, 2781-2782, 694 (1984). defines deportation," very embodying Compare here issue, ("[A]n become BIA's] appeal" judge), 10327(i) [Interstate Commerce] served"). realize unmentioned critically procedure. differently times. Brief Respondent 13-17 (arguing embodies rule), Chu 875 777, 779 1989) argued implies Thomas Jefferson Univ. Shalala, 512 2381, 2393-2394, 129 405 10-11) (inconsistent entitled "considerably deference" view). accept INS's "no tolling" 69 reverse Appeals. syllabus constitutes prepared Reporter Decisions reader. Detroit Lumber 200 321, 337, 282, 287, 499.

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