Document: 128 S. Ct. 2207 (2008) Mohammad MUNAF, et al., Petitioners, v. Pete GEREN, Secretary of The Army, al. Geren, Sandra K. Omar and Ahmed Omar, as next friends Shawqi Ahmad Omar. Nos. 06-1666, 07-394. Supreme Court United States. Argued March 25, 2008. Decided June 12, *2212 Gregory G. Garre, for Petitioners in No. 07-394 Respondents 06-1666. Joseph Margulies, Chicago, IL, 06-1666 Paul D. Clement, Solicitor General, Washington, D.C., Federal Parties. Aziz Z. Huq, Jonathan Hafetz, New York, NY, Eric M. Freedman, Susan L. Burke, Katherine Hawkins, Burke O'Neil LLC, Philadelphia, PA, Vincent Moccio, Amy Hanf, Robins, Kaplan, Miller *2213 & Ciresi L.L.P., Minneapolis, MN, the Habeas Petitioners. Jeffrey Bucholtz, Acting Assistant Attorney Deputy Daryl Joseffer, to Douglas N. Letter, H. Levy, Lewis Yelin, Chief Justice ROBERTS delivered opinion Court. Multinational Force-Iraq (MNF-I) is an international coalition force operating Iraq composed 26 different nations, including operates under unified command States military officers, at request Iraqi Government, accordance with Nations (U.N.) Security Council Resolutions. Pursuant U.N. mandate, MNF-I forces detain individuals alleged have committed hostile or warlike acts Iraq, pending investigation prosecution courts law. These consolidated cases concern availability habeas corpus relief arising from MNF-I's detention American citizens who voluntarily traveled are crimes there. We confronted two questions. First, do jurisdiction over petitions filed on behalf challenging their by MNF-I? Second, if such exists, may district exercise that enjoin transferring custody allowing them be tried before courts? conclude statute extends held overseas subject chain command, even when those acting part a multinational coalition. Under circumstances presented here, however, provides petitioners no relief. I its has "`the authority take all necessary measures contribute maintenance security stability Iraq.'" App. G Pet. Cert. 07-394, p. 74a, ¶ 10 (quoting Council, Doc. S/Res/1546, (June 2004)). To this end, engages variety humanitarian activities. force, example, conducts combat operations against insurgent factions, trains equips forces, aids reconstruction efforts. also pose threat Iraq. Government retains ultimate responsibility arrest imprisonment violate laws, but because many Iraq's prison facilities been destroyed, agreed maintain physical during criminal proceedings. currently holding approximately 24,000 detainees. An unit, Task Force 134, oversees located Camp Cropper, facility housing Munaf (hereinafter petitioners). unit *2214 officers report General David Petraeus. A Petitioner American-Jordanian citizen, 2002. In October 2004, was captured detained U.S. raid his Baghdad home. believed provided aid Abu Musab al-Zarqawithe late leader al Qaeda Iraqby facilitating group's connection other terrorist groups, bringing foreign fighters into planning executing kidnappings searched home effort capture insurgents were associated al-Zarqawi. netted four Jordanian along explosive devices weapons. gave sworn statements implicating cell Jordanians testified they had commit militant Coalition Forces. Each stated that, while living Omar's home, surveilled potential kidnap victims conducted weapons training. explained fluency English allowed him lure foreigners order sell ransom. Following arrest, three-member Tribunal concluded posed designated "security internee." tribunal found acts, he enemy combatant war terrorism. Article 5 Geneva Convention, permitted hear basis detention, make statement, call immediately available witnesses. addition review Tribunal, received hearing Combined Review Release Board (CRRB)a nine-member board six representatives three officers. CRRB, like continued security. At times since capture, remained MNF-I. wife son next-friend petition writ District Columbia. Harvey, 479 F.3d 1, 4 (C.A.D.C.2007). After Department informed decided refer Central Criminal (CCCI) proceedings, attorney sought obtained preliminary injunction barring "remov[al] ... custody." supra, 59a. directed "the [United States], agents, servants, employees, confederates, any persons concert participation them, having actual implicit knowledge Order shall not remove [Omar] custody, action inconsistent court's memorandum opinion." Ibid. appealed Appeals Columbia Circuit affirmed. 1. first upheld Court's jurisdiction, finding decision Hirota MacArthur, 338 197, 69 93 Ed. 1902 (1948) (per curiam), *2215 did preclude review. distinguished ground unlike petitioner case, yet convicted tribunal. F.3d, 7-9. recognized, could used release. Id., 11. It therefore construed only bar transfer insofar it prohibited from: (1) id., 11-13; (2) sharing details concerning release 13; (3) presenting Courts prosecution, 14. Judge Brown dissented. She joined panel's jurisdictional ruling, would vacated because, her view, allow officials individual Iraqsomething "undeniably h[ad] right do." 19. granted certiorari. 552 ___, 741, 169 2d 578 (2007). B Munaf, citizen both States, several Romanian journalists. He serve journalists' translator guide. Shortly after arriving group kidnapped captive months. journalists freed, based belief orchestrated kidnappings. three-judge determine whether Munaf's warranted. reviewed facts surrounding interviewed witnesses, considered intelligence information. present opportunity grounds end hearing, serious security, internee," referred case CCCI prosecution. During trial, admitted camera writing facilitated kidnapping appeared witness co-conspirators. Later recanted confession, nonetheless guilty kidnapping. On appeal, Cassation conviction remanded further investigation. re Hikmat, 19/Pub. Comm'n/2007, (Feb. 19, 2008). "remain outcome" Meanwhile, sister Mohammed 456 F. Supp. 115, 118 (2006). dismissed lack controlled: "in troops aegis MNF-I, derive member nations jointly." 2d, 122. 482 582 (2007) Munaf). Appeals, "[c]onstrained precedent," controlled *2216 jurisdiction. 583. prior 583-584. Randolph concurred judgment. 585. improperly want "Munaf overseas." Nevertheless, failed merits. 586. relied Wilson Girard, 354 524, 529, 77 1409, 1 1544 (1957), "sovereign nation exclusive punish offenses laws within borders," fact conclusive. Ibid.[1] certiorari cases. II argues federal detainees' operate force. Brief Parties 17-36. court entertain application person color States," violation Constitution treaties States." 28 U.S.C. §§ 2241(c)(1), (3). argument goes, "are solely authority, rather `as agent of' force." 23 Hirota, 198, 197). thus pursuant § reach statute. 17-18.[2] acknowledges immediate "`physical custody'" soldiers answer command. 21. itself 23. "[A]s practical matter," concedes, President Pentagon, Defense, commanders control what do," Tr. Oral Arg. 15, light these admissions, unsurprising never argued lacks requires consent countries so. think concessions inquiry. Government's argumentthat agentsis easily reconciled text 2241(c)(1). See Duncan Walker, 533 167, 172, 121 *2217 S.Ct. 2120, 150 251 (2001) ("We begin, always, language statute"). That section applies custody" official charged power produce" him. Wales Whitney, 114 564, 574, 1050, 29 277 (1885); see 2243 ("The detained"). disjunctive "or" 2241(c)(1) makes clear suffices viewed "under of" another primary contention Hirota. slip cannot bear weight place it. Japanese permission file applications directly noncitizens Japan. They sentenced International Military Far Eastan established MacArthur acting, put it, capacity Allied Powers." U.S., 197. Although familiar history period appreciate possibility confusion took orders from, sentencing "not then "[u]nder foregoing circumstances," "no review, affirm, set aside annul judgments sentences" imposed Accordingly, denied leave applications, without legal analysis. character issue means too entity habeas. Reply 5-7. making claim, contends same true notes, Eighth which 199, 197 (Douglas, J., concurring), "unbroken" ending 207, significant, considering nature expressly contended pertinent, authority. suggesting among "foregoing circumstances" cited per curiam disposing highlighted Douglas's belated concurring result, published five months curiam. n. *, Indeed, arguing Court, Perlman Joint Chiefs Staff," duty "to obey directives Eastern Commission our War Department," process issued effect action." *2218 O.T.1948, 239, pp. 42, 50, 51. Here, contrast, President. Even correct "circumstances" differ respect. not, indicated can depend citizenship. Johnson Eisentrager, 339 763, 781, 70 936, 94 1255 (1950); Rasul Bush, 542 466, 486, 124 2686, 159 548 (2004) (KENNEDY, judgment). 584 ("[W]e mean suggest we find logic especially compelling, particularly applied citizens"); 585 (Randolph, judgment).[3] "Under decline extend filing petitions. III now turn question Armed Forces sovereign's territory government us proceed "with circumspection appropriate adjudicating issues inevitably entangled conduct relations." Romero Terminal Operating Co., 358 354, 383, 79 468, 3 368 (1959). Here there consideration arise context ongoing overseas. approach questions cognizant "courts traditionally reluctant intrude upon Executive national affairs." Navy Egan, 484 518, 530, 108 818, 98 918 (1988). D.C. interpreted effectuating "Omar's form, handoff otherwise," 12; "presenting [Iraqi courts] trial," This narrow injunction. defend entirety. acknowledge begin proceedings wisely concede "clearly need include `information-sharing.'" 61. As noted dissent, impermissibly "enjoin *2219 information allied sovereign zone." 18. basics. "extraordinary drastic remedy," 11A C. Wright, A. Miller, Kane, Practice Procedure 2948, 129 (2d ed.1995) Wright Miller) (footnotes omitted); awarded right, Yakus 321 414, 440, 64 660, 88 834 (1944). Rather, party seeking must demonstrate, things, "a likelihood success merits." Gonzales O Centro Espirita Beneficente Uniao Vegetal, 546 418, 428, 126 1211, 163 1017 (2006) (citing Mazurek Armstrong, 520 968, 972, 117 1865, 138 162 (1997) curiam); Doran Salem Inn, Inc., 422 922, 931, 95 2561, 45 648 (1975)). But one searches opinions below vain mention merits petition. Instead, "jurisdictional issues" "so serious, substantial, difficult doubtful, fair litigation more deliberative investigation." 416 23-24, 27 (DC 2006) (internal quotation marks omitted; emphasis added). made mistake. "only [it] th[at] stage relate[d] jurisdiction." "need address" claims: relevance." is, course, reason grant says nothing about "likelihood merits," than unlikely due impediments reaching merits" meant likely injunctions rule, exception. basic principles, hold abuse discretion view tough, underlying What said far require reversal remand each cases: lower erred dismissing issuing upholding There occasions, address them. Our petitioners' claims clear. "is confined act granting injunctio[n], well determining insuperable objection, point merits, [the] bill, and, so, directing final decree it." City County Denver York Trust 229 123, 136, 33 657, 57 1101 (1913). Deckert Independence Shares Corp., 311 282, 287, 61 229, 85 189 (1940) ("`If objection maintaining bill clearly appears, terminated'" Meccano, Ltd. John Wanamaker, Y., 253 141, 40 463, 822 (1920))). long rule: "By ordinary practice equity *2220 administered England country," reviewing appeal interlocutory examine deciding favor defendant dismiss bill." North Carolina R. Co. Story, 268 288, 292, 531, 959 (1925). "[t]he should failure state claim most common order." 16 Cooper, Jurisdiction Related Matters, 3921.1, 32 ed.1996). Adjudication rests law plain plaintiff prevail. cases, entitled See, e.g., Deckert, 229; 531; Denver, 657. Given involve implicate sensitive policy operations, wisest course. Youngstown Sheet Tube Sawyer, 343 579, 584-585, 72 863, 96 1153 (1952) (finding ripe stay injunction). For reasons explain below, precedents ought exercised. Because judgment matter law, terminate now. IV argue legally enforceable right" transferred Due Process Clause Foreign Affairs Reform Restructuring Act 1998 (FARR Act), div. G, 112 Stat. 2681-761, innocent civilians unlawfully Clause. 48-52. With respect prohibiting custody. unlawful seek "release"but extent result "unlawful" 48. Both requests interfere "punish borders." Wilson, 1409. accordingly granted, promptly dismissed, entered. "governed equitable principles." Fay Noia, 372 391, 438, 83 822, 9 837 (1963). recognized "prudential concerns," Withrow Williams, 507 680, 686, 113 1745, 123 407 (1993), comity orderly administration justice, "require forgo power," Francis Henderson, 425 536, 539, 1708, 48 149 (1976). principle bound every case" writ, Ex parte Royall, 241, 251, 6 *2221 734, 868 (1886), follows precatory statute, common-law origins. "may granted," 2241(a) (emphasis added), directs "dispose [habeas petitions] justice require," 2243. Danforth Minnesota, 1029, 1040, 859 (2008). Likewise, "as mere course," required demonstrate why crown" exercised, W. Blackstone, Commentaries Laws 132 (1768); then, "do appertain," 131 (1765). question, therefore, where "whether [that power] exercised." Watkins, 193, 201, 7 650 (1830) (Marshall, J.). outset, suggests core remedy executive detention. Hamdi Rumsfeld, 507, 2633, (plurality opinion). typical Preiser Rodriguez, 411 475, 484, 1827, 36 439 (1973) ("[T]he traditional function secure illegal custody"). here last thing simple release; expose apprehension authorities prosecutionprecisely went avoid. day, really requiring shelter borders. dispute remain today, free prosecute 06-5126 (CADC), 48-49, 59 (Sept. 11, 2006); Mohammed, 06-1455(DC), 15-16 (Oct. 10, 2006). moreover, CCCI, overturned again CCCI. prohibits 16, (Brown, dissenting part) ("`[Omar] trial investigative unprecedented injunction'" Opposition Petitioner's Emergency Motion Injunctive Relief 18-19, 06-5324 (CADC, Oct. 2006))). facts, soil. Marshall nearly centuries ago, own necessarily absolute." Schooner Exchange McFaddon, Cranch 116, 287 (1812). 1409 ("A *2222 borders, unless impliedly consents surrender jurisdiction"); Reid Covert, 29, 1222, 1148 (1957) (opinion Black, J.) ("[A] plenary Americans territory"); Kinsella Krueger, 351 470, 479, 76 886, 100 1342 (1956) (nations try [American citizens] "have relinquished [their] jurisdiction" so). travel abroad pertinent comes rights guaranteed Constitution. "When commits crime country complain submit modes punishment prescribe people." Neely Henkel, 180 109, 21 302, 448 (1901). includes "[f]reedom transfer" "protected wherever seizes citizen." disagree. Not reigns territory, twice reject precludes prisoner allegedly unconstitutional trial. 1544, reversed similar here. cavalry Weir range Japan, Specialist Third Class caused death woman. 525-526, Japan indicted still Girard enjoining "proposed delivery [Girard] Government." 152 21, 1957). permit certiorari, 529-530, surrendered Consequently, though ceded some bilateral Status Agreement, waive jurisdictionas done Girard's caseand authorities. defeat sovereign, Neelythe citizen accused violating Cuban Cuba. 112-113, 302. arrested 113, intent extradite him, suit block extradition *2223 provide panoply 122, summarily rejected claim: "The suggestion [constitutional] provisions relation country." "discharge corpus" issue. 125, violations clear, compelling harbor fugitives system undoubted Petitioners' "release" adds "transfer" claim. fails fails, given form avoid transfer. 47-48; (coupling bring court); (same Omar). Such "exclusive 1409; less commanding smuggle out extraordinary step releasing Omarthe quintessential remedyif shared ally, 13. does keep unsuspecting dark releases Moreover, being behest courts, F.Supp.2d, 117, kind becomes authorized "take Iraq," specifically "internment [of Iraq] imperative security," 86a. While ultimately "responsible imprisonment" S.C. Res. 1790, Annex I, 4, 6, S/RES/1790 (Dec. 18, 2007), maintains heard 117. Cropper express Courts. (directing proceedings). integral justice. *2224 augment peacekeeping efforts functioning, essence, jailor. Any requirement detainee would, effect, impose Government. interference much. "it axiomatic collateral tribunal." 39 Republic Austria Altmann, 541 677, 700, 2240, (2004)). agree, prevent going forward place. convicted. principles sovereigns judicial scrutiny convictions render invalid attempts shield preempt nonreviewable adjudications." 17 part). intervene proceeding pass legitimacy seems least great intrusion plainly barred convictions. Banco Nacional de Cuba Sabbatino, 376 398, 417-418, 84 923, 11 804 (1964) ("`To validity State reexamined perhaps condemned very certainly "imperil amicable relations between governments vex peace nations"'" Oetjen Leather 246 297, 303-304, 38 309, 62 726 (1918); punctuation omitted)).[4] course here: Neither nor concerned ally's hostilities involving troops. involved charge embezzlement; peacetime actions serviceman. Yet allows passing strange where, detainees engaging ally refers "an active theater combat." 16. conclusion concerns interfering prerogative apply unwarranted Executive's ability abroad. constitutional framework "requires judiciary scrupulous legitimate Army matters *2225 matters." Orloff Willoughby, 345 83, 94, 73 534, 97 842 (1953). Those prosecution; hardly exception rule embezzlement insurgency contend general trumped torture. allegation raised habeas, 39, 46, Omar's. allegations concern, addressed political branches, judiciary. Bassiouni, Extradition: Law 921 ("Habeas valid inquiry treatment relator anticipated receive requesting state"). reflected already cited. transferred, judiciary, assess practices assessments. Thus, "commits country" "cannot people," "unless mode treaty stipulation Diplomacy addressing petitioner's concerns. By token, altered diplomatic agreement particular concerns agreementas case. Kinsella, 886 (alteration through "carefully drawn agreements"). recognition branches creating exceptions new; Exchange, "exemptions territorial derived territory" "rather diplomatic, discussion." Cranch, 143, 146, 287. loss Neely, governed principles.[5] *2226 Branch may, reasons, ones. allege mistreatment facility; extreme determined tortured decides anyway. states torture result. 47; explains although remains sectors Ministrythe department Omaras "`generally met internationally accepted standards needs.'" determinations assessment country's and... Executive['s] obtain assurances considers reliable." 47. Judiciary suited second-guess determinationsdeterminations systems undermine speak voice area. Federalist 279 (J. Cooke ed. 1961) Madison) ("If respect, nations"). situated consider issues, prospect hands is. noted, "we assume oblivious possess significant tools leverage lacks." 20, (dissenting briefly readily FARR 51-52. asserted filings brief discuss 17, 51-52, 57-58. treats kind. 24-26. will question.[6] *2227 2 Finally, raise additional "[G]overnment authority." 54. bears burden "identify[ing] permits the[m] 49. rely prominently Valentine ex rel. Neidecker, 299 5, 100, 81 (1936), ruled "legal authority" so Congress terms treaty," 9, 100. distinguishable. States; territory. context, "fugitive criminal" "`there vested seize [him] power,'" absence legislative provision. explained, odd whose behalf, detained. supports absent 54-55. Quite opposite. forecloses "authority" Wilsona Agreementseemed give tribunal, court. background interest prosecuting "constitutional statutory" impediment States's waiver agreement. * Pending offenses, Mandate *2228 precisely above, dismissed. entered vacated, consistent opinion. ordered. SOUTER, whom GINSBURG BREYER join, concurring. holds relief." Ante, 2213. following: "voluntarily Iraq." 2221. "territory" "all[y]" ante, 2224, (4) troops, 2216-2217, (5) "during hostilities" (6) "involv[e] troops," 2224. (7) "for soil." And (8) generally needs." 2226 omitted). essential holding, join reserves "extreme [in custody] anyway." 2225-2226. add today's read foreclosing resists transfer, say, sort, caveat probability documented, rightly points receiving government's proper consider, 2225-2226, ask substantive bars consigning people aimed securing release, protective 2221, avenue open objecting prisoner; "where federally protected [are threatened], beginning alert adjust remedies relief," Bell Hood, 327 678, 684, 66 773, 90 939 (1946). NOTES [1] subsequently appellate court, awaiting new [2] statutory writ. Nothing herein addresses alien scope [3] original motions Court." proposition subject-matter "`cases affecting ambassadors, public ministers consuls, party,'" Marbury Madison, 137, 174, 60 (1803) Const., Art. III, 2, cl. 2), decisions East. [4] presentation go absence. narrowed. theory might "presented tried, [and] convicted," depriving interpretation sense theory: If deprive defendant, just jurisdiction-divesting order. [5] procedural protections nations. Atlantic Treaty: Forces, 1951, U.S.T. 1802, T.I.A.S. 2846, VII, (guaranteeing members civilian dependents, inter alia, attorney, interpreter, prompt speedy confront favorable communicate representative States). [6] amend respective pleadings remand. addressed. speaks situations "returned" 2242(a), 2681-822 ("It expel, extradite, otherwise involuntary return substantial believing danger subjected torture, regardless physically States"); Convention Against Torture Other Cruel, Inhuman Degrading Treatment Punishment, 1465 U.N.T.S. 85, 3, Treaty 100th Cong., Sess., (1988) ("No Party (`refouler') torture" added)). settled Iraq; arguably country"he limited certain immigration 2242(d), ("[N]othing providing section, determination forth [this section], except removal [8 1252 (2000 V])").

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