Legal Document

544 U.S. 660 MEDELLINv.DRETKE, DIRECTOR, TEXAS DEPARTMENT OF CRIMINAL JUSTICE, CORRECTIONAL INSTITUTIONS DIVISION. No. 04-5928. Supreme Court of United States. Argued March 28, 2005. Decided May 23, Petitioner Mexican national sought federal habeas review his state capital murder conviction, claiming that Texas had not notified him right to consular access as required by the Vienna Convention. The District denied relief. In declining grant petitioner a certificate appealibility, Fifth Circuit gave no effect an intervening International Justice (ICJ) ruling States courts must reconsider petitioner's Convention claim. After this granted certiorari, President George W. Bush issued memorandum stating would discharge its international obligations under ICJ judgment "having State give to" it. Relying on and judgment, filed application shortly before oral argument here. Held: writ certiorari is dismissed improvidently granted. proceeding may reconsideration claim he now seeks in proceeding. addition, merits briefing case has revealed several threshold issues could independently preclude Certiorari dismissed. Reported below: 371 F. 3d 270. CERTIORARI TO THE UNITED STATES COURT APPEALS FOR FIFTH CIRCUIT. Donald Francis Donovan argued cause for petitioner. With briefs were Carl Micarelli, Catherine M. Amirfar, Gary Taylor. R. Ted Cruz, Solicitor General Texas, respondent. brief Greg Abbott, Attorney General, Barry McBee, First Assistant Don Clemmer, Deputy Sean D. Jordan, Kristofer S. Monson, Adam Aston, Solicitors General. Dreeben amicus curiae urging affirmance. Acting Clement, Wray, Irving L. Gornstein, Robert J. Erickson.* PER CURIAM. 1 We consider two questions: first, whether court bound Justice's José Medellín's relief Consular Relations, Apr. 24, 1963, [1970] 21 U. T. 77, 100-101, I. A. 6820, without regard procedural default doctrines; second, should effect, matter judicial comity uniform treaty interpretation, ICJ's judgment. 543 1032 (2004). we Medellín corpus Criminal Appeals, relying part upon from was after certiorari. This state-court provide with very present also number hurdles surmount qualifying proceeding, based resolution questions presented For these reasons dismiss See Ticor Title Ins. Co. v. Brown, 511 117, 121-122 (1994) (per curiam); Monrosa Carbon Black Export, Inc., 359 180, 183-184 (1959); Goins States, 306 622 (1939). 2 Medellín, national, confessed participating gang rape girls 1993. He convicted sentenced death, Appeals affirmed direct appeal. then action, first time failed notify trial rejected claim, summarily affirmed. 3 petition, again raising petition. Subsequently, while appealability pending, see 28 C. § 2253(c), decision Case Concerning Avena other Nationals (Mex. S.), 2004 128 (Judgment Mar. 31), which Republic Mexico alleged violations respect nationals facing death penalty determined guaranteed individually enforceable rights, violated those "provide, means own choosing, convictions sentences [affected] nationals" determine "caused actual prejudice," allowing rules bar such review. Id., ¶¶ 121-122, 153(a). 4 appealability. It did so default, Breard Greene, 523 371, 375 (1998) curiam), prior holdings create right, see, e. g., Jimenez-Nava, 243 192, 195 (CA5 2001). 270 2004). While acknowledging existence dispositive 5 More than months month case, stated [ICJ] accordance general principles cases 51 addressed decision." Bush, Memorandum (Feb. 2005), App. Brief Amicus Curiae 9a. separate bases available at successive just four days That required, new development, well factors discussed below, leads us granted.1 6 There are thus render advisory or academic our consideration presented. These free doubt. 7 First, even accepting, arguendo, construction Convention's provisions, violation provisions be cognizable Reed Farley, 512 339 (1994), recognized statutory rights ranked among "nonconstitutional lapses have held postconviction proceeding" unless they meet "fundamental defect" test announced Hill 368 424, 428 (1962). S., 349 (plurality opinion); id., 355-356 (SCALIA, J., concurring judgment). order obtain relief, therefore establish does 8 Second, any "adjudicated merits," only if adjudication "was contrary to, unreasonable of, clearly established Federal law, Court." 2254(d)(1); Woodford Visciotti, 537 19, 22-27 (2002) curiam). court, disposed rendered Avena, arguably merits" three claims. found individual, judicially barred Finally, perhaps most importantly, "fail[ed] show harmed lack notification consulate concerning arrest murder; [Medellín] provided effective legal representation [his] request; constitutional safeguarded." Pet. Cert. 56a.2 overcome deferential standard all findings obtaining claim.3 9 Third, generally cannot enforce "new rule" law. Teague Lane, 489 288 (1989). Before granted, then, obliged decide how bears ordinary jurisprudence. 10 Fourth, requires pursue 2253(c)(1). A where there "a substantial showing denial right." 2253(c)(2) (emphasis added). To necessary proceed demonstrate allegation satisfy standard. Slack McDaniel, 529 473, 483 (2000). 11 Fifth, can seek claims been exhausted court. §§ 2254(b)(1)(A), (b)(3). gain President's judgments, remedies.4 12 light possibility will pursuant memorandum, potential once heard decided pending think it unwise reach resolve multiple hindrances answers here Accordingly, 13 ordered. Notes: * Briefs ofamici reversal American Bar Association Grey, Jr., Jeffrey Bleich; Associations et al. Kevin Sullivan, William Aceves, Clifford Anderson; Foreign Sovereigns Asim Bhansali Steven Hirsch; Former Diplomats Harold Hongju Koh, B. Ayer, K. Shirey II; Government Sandra Babcock; NAFSA: Educators Stephen Hanlon; Ambassador Bruce Laingen Joseph Margulies. amici affirmance Alabama Troy King, Alabama, Clayton Crenshaw Charles Campbell, Attorneys their respective follows: Terry Goddard Arizona, Bill Lockyer California, John Suthers Colorado, Jane Brady Delaware, Crist, Florida, Thurbert E. Baker Georgia, Lawrence G. Wasden Idaho, Steve Carter Indiana, Phill Kline Kansas, Jim Hood Mississippi, Jeremiah (Jay) Nixon Missouri, Mike McGrath Montana, Petro Ohio, Drew Edmondson Oklahoma, Thomas Corbett Pennsylvania, Henry McMaster South Carolina, Paul Summers Tennessee, Mark Shurtleff Utah, Judith Williams Jagdmann Virginia; Alliance Defense Fund Nelson P. Miller, Wagner, Benjamin Bull; Legal Foundation Kent Scheidegger; Liberty Institute Kelly Shackelford; National Attorneys' Olson Charron; Professors Law Stephan; Washington Daniel Popeo Richard Samp. European Union Adele Shank Quigley; Experts Lori Fisler Damrosch Owen Verrill, Jr.; Mountain Perry Pendley; Senator Cornyn Cooper, Vincent Colatriano, David H. Thompson. Of course courts' disposition application. instance, likelihood opportunity treatment andCase U.S.), unencumbered arise posture action. reviewing finding observed: "Medellín's allegations prejudice speculative. police officers informed involvement murders. waived advisement attorney. challenge voluntary nature confession. indication that, counsel. fails `causal connection between [Vienna Convention] statements.'" 84a-85a (brackets original). InBreard Virginia Paraguayan access. denying various writs, motions, stay applications, noted "arguably confers individual assistance following arrest"; Virginia's doctrine applied claim; successful claimant likely prejudice. 375-377. At decision, however, confronted final adjudication. On 8, 2005, action Tex. Code Crim. Proc. Ann., Art. 11.071, 5(a)(1) (Vernon both theAvena require Subsequent Application Post-Conviction Writ Habeas Corpus Ex Parte Trial Cause Nos. 67,5429 67,5430 (Tex. App.), p. (filed 2005) ("First, determination comply Judgment remand Mr. mandated terms provides rule given Court"). 14 JUSTICE GINSBURG, whom SCALIA joins Part II, concurring. 15 arrested, detained, tried, convicted, being accorded 6820. called prompt notice consul. advice assistance. 16 unsuccessful challenges conviction sentence, later Court's His petition rests primarily 31, 2004: (Avena). draws support same earlier against States: LaGrand (F. 2001 466 June 27) (LaGrand). failure accord similarly situated necessitated courts. Further, specified, doctrines invoked reconsideration. (1) Are judgment; (2) Should judgments "in interest interpretation." i. 17 February announced: 18 "[T]he [Avena], having comity." 9a (hereinafter Memorandum). 19 thereupon moved further proceedings pursuit remedies contemplated Memorandum. I motion conservative courses might take. "least change" measure, garnered majority support. 20 divided responses Memorandum: initial rulings host difficult issues, post, 684, 690 (O'CONNOR, dissenting), recognizing court's prerogative hold abeyance 690; writ, likelihood" positioned "to [M]emorandum [the judgment] [threshold] action," ante, 664, n. 1. former invite conduct rival recently launched put hold, cautionary measure itself unwilling latter leave nothing here, but enable ultimately resolve, cleanly, controlling shorn pervade instant II join election instituted do jurisdiction proceedings, time, definitively "the Nation's obligation prove necessary." Post, 691 (SOUTER, dissenting). 22 principal dissent return leaving unresolved bewildering array questions. 684 (opinion O'CONNOR, J.) (describing touched "difficult"). Among inquiries left open "for proceedings": Is (COA) when applicant complaining right"? 677 dissenting) (internal quotation marks omitted); 677-679; cf. 666. What directions lower take (1989), 424 (1962)? 681-682 dissenting); 664-666. "conflict [this Court's] 376 curiam)"? dissenting).1 Has avenues 666; Rhines Weber, 269; Rose Lundy, 455 509, 518-520 (1982); 682-683, response postdate rejection pleas proceedings? contentious preliminary clog entire moot. 692 ("[A]ction remove occasion petition."). 23 odds "give [Avena] comity," Memorandum, conspicuous conflict law Restatement (Second) Conflict Laws 98 (1988); (Third) Relations 481 (1986); Judgments (1980), instruct "hol[d] up interpretation domestic conclusions." J.). But ALI, Recognition Enforcement Judgments: Analysis Proposed Statute 2, Comment d, 38 (2005) ("[A] entitled recognition reexamined second court."). long-recognized binds respected comity, "let's agree" approach out order. Hilton Guyot, 159 113, 202-203 (1895) (where "comity nation" calls abroad, . tried afresh mere assertion erroneous fact"); 106 (1969) ("A enforced states though error fact made ."); 106, ("Th[is] applicable foreign nations. Reese, Status Country Rendered Abroad, 50 Colum. Rev. 783, 789 (1950) ("[Foreign] merely because original either law.").2 24 Troubling well, clear instructions dissenters remit comes others "should of" COA determination, 682 J.), if, as, participation fray point, moreover, risks disturbance collision with, commenced Texas. appears acknowledge concern observing "hold docket until resolved court." J.); 694 (BREYER, unwillingness one ask what justifies parking instead, Appeals. 25 per curiam opinion complementary grounds. "may proceeding." Ante, 662. freighted formidable 664-666, deter definitive 26 Petitioner's recent filing raises discrete previously presentation forum: 2005). ("President Bush's constitute sources binding law."). immediately adjudicate cleanly instance. turn, responsibility, proper need be, ultimate answers. suggests reliance onAvena distinct properly maintained single throughout — remedy violation. Pointing akin pointing bolster existent neither opposed supporting Cf. Yee Escondido, 503 519, 534-535 (1992). GINSBURG gives unduly narrow question asks: "[S]hould inAvena LaGrand"? read "`effect'" strict sense 670-671 (GINSBURG, concurring): Because beneficiary 27), Germany Medellín. asks body charged adjudicating disputes arising sake "uniform understanding takes account, should, correct, independent central below. Moreover, consistent practical way "fairly included" Rule 14.1(a); City Sherrill Oneida Indian Nation N. Y., 213, 6; Ballard Commissioner, 47, 2. 27 STEVENS, SOUTER, BREYER join, dissenting. Ernesto offered proof reasonable jurists find debatable wrong thereby sentence. Three specific deserve consideration: favor, Other courts; Article 36(1)(b) creates right; (3) 36(2) sometimes set aside "full effect." vacate issues. 29 dismisses (and terminates proceedings) basis speculation: about whose constitutionality remains rightfully agnostic, unable secure likewise, rightfully, undecided. tentative predictions not, my view, reason enough avoid compelling remain Court. seems me unsound importance recur. respectfully dissent. 30 36 guarantees channels communication detained consulates signatory countries: 31 "[I]f requests, competent authorities receiving shall, delay, inform post sending within district, arrested committed prison custody manner. Any person prison, detention shall forwarded said delay. concerned delay sub-paragraph." 36(1)(b), 101, 32 Presently 167 nations party Convention, including immediate neighbors north south. Multilateral Treaties Deposited Secretary-General Nations, http://untreaty.un.org/English/bible/englishinternetbible/partI/chapterIII/treaty31.asp (all Internet materials visited Clerk file). 33 country, States' (often confessed) noncompliance vexing problem. See, Emuegbunam, 268 377, 391 (CA6 2001) (discussing violations). times subject (ICJ). (Para. 1998 426 (Order Nov. 10); 27); supra. problem considerable ramifications, regularly criminal justice systems. example, 2003, over 56,000 noncitizens prisons. Noncitizens accounted 10% populations New York, Arizona. Dept. Justice, Bureau Statistics Bull., (rev. July 14, 2004), Prison Jail Inmates Midyear http://www.ojp.usdoj.gov/bjs/pub/pdf/pjim03.pdf. 34 Noncompliance especially worrisome cases. As 119 non-citizens row. Death Penalty Under Sentence http://www.deathpenaltyinfo.org/article.php?did=198& scid=31. breached nationals, notification. them. 128, ¶ 106. presents, turn avoids, inevitably 35 told who born Laredo, Mexico. JA15. Harris County Pretrial Services citizen. 165a. Nonetheless, ever contact became aware predicament some six weeks affirmed, wrote them letter Texas' Since coming into consul, (among relief) evidentiary hearing prejudiced corpus. reasoning relevant part: 37 "13. Based applicant's objection procedurally presenting rights. Hodge State, 631 2d 754, 757 1982); 549 183, 187 1977). 39 "15. alternative, applicant, private lacks standing Hinojosa 72,932 Oct. 27, 1999) (holding treaties operate contracts nations; thus, offended nation, redress sovereign interests)." 55a-56a. 40 41 next petitioned Southern brought Arizona advise German defendants LaGrand, Consistent arguments meaning, raise 490-491, 497-498. definitive, persuasive, control Rejecting arguments, 42 Circuit. 2253(c). issue demonstrated "reasonable debate (or, matter, agree that) different manner [in district court] `"adequate encouragement further."'" 484 (2000) (quoting Barefoot Estelle, 463 880, 893, (1983)). 43 Meanwhile, initiated grounds 54 defendants, pending. Repeating through supra, 153. pronouncements nonetheless concluded lacked requisite merit COA. 44 preclusive courts? apply comity? refer substantial, proceedings. 45 every step, evaluate framework Antiterrorism Effective Act 1996 (AEDPA), controls process prisoner And wherever continuous force since 1969, conflicts subsequently enacted statute, statute govern. Reid Covert, 354 1, (1957) Whitney Robertson, 124 190, 194 (1888). 46 outset, argue AEDPA's 2253(c) precludes meritorious be. According 2253(c)(2), "only maintains prisoners appeal adverse decisions involving Congress use word "constitutional" shorthand traditionally habeas. Hertz & Liebman, Practice Procedure 448-449 (4th ed. Slack, (noting Congress' substitution "`constitutional'" "`federal'" probable COA's predecessor saying change meaningful). 47 concedes raised Tr. Oral Arg. 29. Normally stage. Taylor Freeland Kronz, 638, 645-646 contends nonwaivable jurisdictional objection. So start actually waived. true "gateway" device. Miller-El Cockrell, 322, 337 (2003). By obliging applicants make aired appeal, serves important screening function conserves resources appellate end, insofar one. 335-336. verify 48 follow, predicate validity independently, prompting parties, waiver apply, arguments. If so, presiding COA, always check "substantial showing" asserted absence controversy parties. never imposed rule, undermine efficiency process. Young 794, 799 (CA7 1997). Predicate considerations "constitutional right" sorts case. Compare Peguero 526 (1999) (considering 32(a)(2) collateral relief), O. 1998, 97-9217, 6, (arguing deprived stake). Thus, below treaty-based now. 49 adverts another AEDPA provision, 2254(d), says fatal behalf claim—(1) resulted involved States." Whether clears appropriate contemplating Miller-El, U.S., 349-350 concurring) circuit judge deny conclude substantive provision bars relief"); 336. deference constrain deserves dismissing 675. doing, whether, 36(2), overrides rules. reasoned individuals (as nations) 675-676. "contrary precedents and, therefore, subsequent "A certainly precedent applies contradicts governing forth cases." Taylor, 362, 405 (2000); Brown Payton, 141. blanket plainly axiomatic compacts nations, contain confer certain citizens subjects residing territorial limits other, partake municipal capable enforcement parties country." Head Money Cases, 112 580, 598 (1884). asked nor answered question: bring particular treaty. de novo. Williams, 406. B catalogs nonjurisdictional justify Apparently agrees impossible imprudent today. odd undecided yet rely weighty undeniably us. Given modest task worthy points outside scope inquiry. Anyway, practice generally, remanding resolving questions, canvass possible permutations happen resolution. are, course, important, none ought detain 52 mention (1962), depriving discuss applicability complicated question. papers already received analysis habeas, Opposition 14-16, abandoned merits. Business Machines Corp., 517 843, 855, (1996) (the address arguments). Here, argues future thought (not unreasonably) satisfied analysis. Respondent 16-17. unfulfilled request ICJ, part, believe receive requires; otherwise, ruled still "review reconsideration" sentence suffered "actual prejudice." correct observe contend Teague's highly remand. III 53 "While claim," 331, assessment explain why vacated. Optional Protocol "[d]isputes lie compulsory Justice." Compulsory Settlement Disputes, 326, 6820 Protocol). recently. Letter Condoleezza Rice, Secretary Kofi Annan, Nations (Mar. 7, (notifying hereby withdraws Protocol's authority. follow deciding claims.1 55 say must, debatable, result reasoning. result, improper "internationally wrongful acts," "remedy good consist permit Mexican] nationals' courts." 121. irreconcilable Court's. specified applying prevent vindicating violates treaty, purposes "`full effect.'" 113. 56 undertakes Convention), abide dispute submitting Protocol), generated less source obligation. words, back self-executing infra, 686, system asserts, bottom, like status supreme land. 57 hand, turns large interpret 94(1) Charter, "[e]ach Member party." 59 Stat. 1051. They maintain charter imposes duty political branches. deprive Executive discretion relations, improperly displace responsibilities body. answer Supremacy Clause, reflected Avena. 58 passed How Reasonable vigorously disagree courts, benefit posture. consideration. alternative weight decision. holding conclusions, extent reconciled. Olympic Airways Husain, 540 644, 660-661 (2004) Air France Saks, 470 392, 404 (1985). encompassed pressed themselves COA: trumps rules.2 60 remarked arrest." Breard, 376. maintains, contrary, theory, complain court—even review—about State's "inform under" 36. T., 101. complainant state, political, diplomatic, 61 When controversy, Branch's obligations. Kolovrat Oregon, 366 187, (1961); Charlton Kelly, 229 447, 468 (1913). treaty's meaning beyond interpreted Cf., Chan Korean Lines, Ltd., 490 122, 136 (1989) (Brennan, judgment) (observing rejecting view Warsaw consistently adopted Branch case); Perkins Elg, 307 325, 328, 337-342 (1939) (declining adopt Executive's interpretation); Johnson Browne, 205 309, 319-321 (1907) (same); De Lima Bidwell, 182 181, 194-199 (1901) (same). 62 is, recognizes, 26. Chief Marshall explained "operates itself," Court," "equivalent act legislature." Foster Neilson, 253, 314 (1829). self-executing, susceptible 598-599 land whenever prescribe citizen determined. justice, resorts statute"); Henkin, Affairs Constitution 206-209 (2d 1996). 63 ascertain individuals, look text statute's. Alvarez-Machain, 504 655, 663 (1992); France, 397. entails countries. Their consul detentions, forward consulate, subparagraph." 101 these, third exclusively concerns expressed language 36(1) conferred command "inform" detainee "his rights" meaningless. appear 36(1)(a), ibid.; ibid. 64 sure, analytically distinct. countries correspondence invoke personal virtue character. goes further— imposing provide, arresting "shall counsel," more defendant informed. 65 repeatedly foreigners, assert treaties. treaties, often regarding reciprocity commerce navigation, share special magic words. rights-conferring clearer specify enforcement. Asakura Seattle, 265 332, 340 (1924) (allowing Japanese States-Japan requiring "`citizens each [two countries] liberty carry trade'" other's territory, local licensing ordinance pawnbrokers violating guarantee); Kolovrat, 191-192, (sustaining Yugoslavians' Oregon inheritance limiting inherit, States-Serbia Treaty promised "`[i]n acquiring, possessing disposing kind property [each country other] enjoy laws favored nation'"). 66 Likewise, acknowledges approval relate privileges immunities, 26, (citing Risk Halvorsen, 936 393, 397 (CA9 1991) (deciding defeated 1351 officials), Gerritsen la Madrid Hurtado, 819 1511, 1515-1516 1987) (same)). Although phrased jurisdiction, theoretically vindicated diplomatic processes, been. 43(1), 104 ("Consular employees amenable administrative acts performed exercise functions"); 193; Hauenstein Lynham, 100 483, 487 (1880). 67 plausible Government's Choctaw 318 423, 431-432 (1943) (looking extrinsic interpretation). preamble purpose immunities [contained treaty] ensure efficient performance functions posts 79. Department congressional statements contemporaneous ratification indicate significant departures existing practice. Li, 206 56, 64-65 (CA1 2000); 73-75 (Torruella, dissenting part). interprets mean branches contemplate role 21-22. asserts Department's previous litigation behavior 22-23; 64. allow fuller granting 68 forfeited according provides: "The referred paragraph exercised conformity regulations proviso, full intended." Ibid. imminent execution accompanying petitions, defaulted failing seeking 375-376. Subsequently above, differently. 112-113. past revisited come light. Percheman, 51, 89 (1833). Even least 36(2)'s implications default. 69 Again, All debatable. done much. posture, cannot, construe warrant IV 70 explained, Appeals' proceed, "by memorandum. remand, wished scheduling Landis North Co., 299 248, 254 (1936). SeeRodriguez Quijas Shearson/American Express, 477, (cautioning disturbing decisions). 691-692 "whether [short effect] toAvena," interpreting "perhaps 684-685, Significantly, chose break underlying subsumed i.e., "creates "sometimes `full effect,'" 673 Nor invocation "international 45, plea interpretation," 48, Instead, urges accorded, uniformity achieved, authoritative elaborated ("Given consent treat court."); Reply "agreed authority application" added)). 71 72 bearing barring appeal: 31) (Avena), litigate claimed bars, interpretation. Prior advised accordingly gone determination. moot subsidiary spotted opinions), best do; wipe work far, would, position promptly necessary. 73 stay, conclusion room disagreement, meriting understandably constrained viewed otherwise. face otherwise today, presents shadow weight, effect. fresh look. 74 O'CONNOR's opinion, caveats. point limit remand; outlined III-B implicated defer discussion matters taken enquiry possible. providing anticipated responding run Taking proposed limitation eliminate risk unnecessary rulings, retain option promptly, litigating far. 75 BREYER, STEVENS joins, 76 developments, simply stay. 668 (concurring But, Circuit's rather dissent, she same. 677, 690. 77 thing, "American Avena" erred contrary. 270, 279-280 vacating books 78 "invite those" unfolding concurring). Rather, expect recognize circumstances favor entering 79 C 31); permits together signature Protocol, nationals) "judicial," e., Convention-based claims, States'] choosing," (4) "undertak[ing]" Charter 138-143, 153(9) added); 94.1, 1051; Ware Hylton, Dall. 199, 237 (1796) (treaties "superior state" deleted)); Sale Haitian Centers Council, 509 155, 188 (1993) (President possesses "unique responsibility" "foreign affairs"); Assn. Garamendi, 539 396, 414-416 (2003) degree pre-empt law); Arts. 11.01, 11.071 (Texas possess hear claims). 80 Members confirmed suggesting appropriate. 672 (it "this ICJ-related proceedings). 81 considered stronger real victory loss followed Taken staying additional guidance taking circumstances, unlikely move own, hand possibly 82 writ.

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