Legal Document

464 U.S. 183 104 S.Ct. 584 78 L.Ed.2d 401 IMMIGRATION AND NATURALIZATION SERVICE, Petitionerv.Padungsri PHINPATHYA. No. 82-91. Argued Oct. 3, 1983. Decided Jan. 10, 1984. Syllabus Section 244(a)(1) of the Immigration and Nationality Act (Act) authorizes Attorney General, in his discretion, to suspend deportation an otherwise deportable alien who "has been physically present United States for a continuous period not less than seven years" is person good moral character whose would result extreme hardship or spouse, parent, child. Respondent, citizen Thailand, first entered as nonimmigrant student October 1969, was authorized remain until July 1971. But when her visa expired she chose stay without securing permission from immigration authorities. In 1977, petitioner Naturalization Service commenced proceedings against respondent. Conceding deportability, respondent applied suspension pursuant § 244(a)(1). Based on respondent's testimony that had left Thailand during January 1974 improperly obtained consular officer aid reentry three months later, Judge concluded failed meet 244(a)(1)'s 7-year "continuous physical presence" requirement accordingly denied application suspension. The Board Appeals (BIA) affirmed, holding absence meaningfully interruptive presence country, since illegally at time able return only by misrepresenting status. Court reversed, BIA placed too much emphasis illegal prior departure increased risk engendered, can be "meaningfully interruptive" it increases reduces deportation. Held: Respondent did requirement. Pp. 189-196. (a) Appeals' interpretation this departs Act's plain meaning. language requiring certain threshold criteria met before may plainly narrows class aliens obtain ordinary meaning such does readily admit any exception When Congress has intended flexibly administered, provided authority doing so. Moreover, evolution provision itself shows knew how distinguish between actual some irreducible minimum "nonintermittent" presence. 189-192. (b) Since case deals with added statute specifically limit discretionary availability remedy, flexible approach statutory construction, approach, consistent congressional purpose underlying Rosenberg v. Fleuti, 374 449, 83 1804, 10 1000, distinguished. 192-194. (c) To interpret collapses section's into its "extreme hardship" reads former out Act. history suggests two requirements are separate preconditions It also clear strict General could exercise discretion construe so broaden fundamentally inconsistent intent. 195-196. 673 F.2d 1013 (9th Cir.1981) reversed. Elliott Schulder, Washington, D.C., petitioner. Bert D. Greenberg, Beverly Hills, Cal., Justice O'CONNOR delivered opinion Court. 1 (Act), 66 Stat. 214, amended, 8 U.S.C. 1254(a)(1), adjust status (1) years"; (2) "is character"; (3) "a would, child, . ." we must decide 2 * native October, 1969. Respondent's husband, country August, 1968. husband were July, However, their visas expired, they 3 January, petitioner, (INS),1 241(a)(2) See 1251(a)(2). conceded deportability 1254(a)(1). An judge found satisfied eligibility suspended App. Pet. Cert. 29a-31a. own showed 1974, later.2 On basis evidence, year Act: 4 "[Respondent's] brief, innocent, casual. have longer if spouse fast it. casual because new Tha[i] passport, well American Consul, States. innocent inform Consul wife years (and therefore entitled received)." 28a. 5 Accordingly, he Id., 28a-29a. 6 affirmed judge's decision issue.3 observed mispresenting foreign student. 17a-18a. these observations, Ibid. 7 noted that, although traveled months, "she intended, all times, States." Phinpathya INS, 1013, 1017 (CA9 1982). held engendered. 1017-1018. Finding BIA's legally erroneous, that: "an cannot 'meaningfully interruptive' factors present: hardships severe occurred, there increase absence." 1018, n. (citing Kamheangpatiyooth 597 1253, 1257 1979)). 9 "failed view circumstances totality [analyze those circumstances] light Congressional purpose," id., 1017,4 remanded further issue.5 We granted certiorari, --- ----, 103 291, 74 275, review "physically find Act.6 II 11 This numerous occasions "in cases involving 'our starting point employed Congress,' assume 'that legislative expressed words used.' " Tobacco Co. Patterson, 456 63, 68, 102 1534, 1537, 71 748 (1982), quoting Reiter Sonotone Corp., 442 330, 337, 99 2326, 2330, 60 931 (1979), Richards States, 369 1, 9, 82 585, 591, 492 (1962). 244(a) requires delegates, alien. each applicant extraordinary relief prove he: 12 immediately preceding date application, character; lawfully admitted permanent residence 13 "exception[s] 'continuous presence' eligible deportation." McColvin 648 935, 937 (CA4 1981). 14 By contrast, past For example, 301(b) Act, which required "continuou[s] presen[ce]" maintenance national citizen, "absence sixty days aggregate shall break continuity presence." 86 1289, repealing 644 (12-month presence). deliberate omission similar moderating compels conclusion meant administered written. 15 Indeed, "non-intermittent" Prior 1940, no ordering deportation, alien's sole remedy private bill Congress. INS Wang, 450 139, 140, 101 1027, 1029, 67 123 (1981). "would serious economic detriment" families. 54 672. Then, 1948, amended again make process available "resided continuously more" show five years, regardless family ties. 62 1206. Finally, 1952, attempt discontinue lax practices discourage abuses," replaced residence" current H.R.Rep. 1365, 82d Cong., 2d Sess., 31 (1952), U.S.Code Cong. & Admin.News p. 1653. made more stringent both restrict opportunity action, see exclude: 16 "aliens [who] deliberately flouting our laws processes gaining admission ostensibly nonimmigrants but intention establishing themselves situation subsequently access administrative residents." S.Rep. 1137, pt. 25 (1952).7 17 Had concerned mere domicile general abode, retained Instead, expressly opted 18 switch simple accident draftsmanship. broadened citizenship "physical least half residency. Concomitantly, restrictive; suspensions deportations "grossly unfair await abroad turn quota waiting lists,"8 wanted number allowed through action.9 provisions interrelated parts Congress' comprehensive scheme admitting country. do justice applying "plain [Section ], however consequences." Jay Boyd, 351 345, 357, 76 919, 926, 100 L.Ed. 1242 (1956). inquiry whether suffered upon diminished fails III 19 contends should approve "generous" "liberal" construction notwithstanding statute's history. Brief (quoting F.2d, 1256, 3). She argues keeping 1000 (1963), equitable ameliorative nature remedy. disagree. A. 20 lawful resident after afternoon trip Mexico constitute "entry" within 101(a)(13) Act.10 construed term "intended" definition mean "intent depart manner regarded residence." 462, S.Ct., 1812. interpreted allow like Fleuti excluded "for condition deported remained subject "unsuspected risks unintended consequences wholly action." 460, 1811. gone Mexico, travel documents, few hours, determination "innocent, casual, brief," residence. 21 essentially irrelevant adjudication application. dealt enacted precisely ameliorate harsh effects judicial doctrine. 457-462, 1809-1812. supra, 190-191. Thus, whereas 101(a)(13), 22 believed considered "meaningless irrational hazards" create. inferred approved resulted Fleuti. U.S., 460-462, 1811-1812. Here, every reason believe actions. mechanism factoring decisions. ignore mandate applicable 1254(a)(1).11 refuse 23 note, though essential decision, involved who, departure, right case, unlawful even Such expecting Government permit readmit soil. simply being [she] 1811.12 B 24 articulation standard—that deportation—as of, grant, 6-11. suggestion merit. Although serves remedial purpose, liberal collapse read section suggest 191 9. strains yet assessment hardship. 26 proceedings. drafted action. General's rejected relaxed standard evaluating impermissibly shifting courts. 146, 1032, analogously shift relax and, eventually, evident experience reject impermissible tripartite government.13 designs laws, up temper laws' rigidity desires. IV 27 ignores extends whom clearly intend what said: judgment 28 Reversed. 29 BRENNAN, MARSHALL STEVENS join, concurring judgment. 30 today holds unexplained three-month disqualifies under ante, page, further, 244 context, I agree conclusions. reaching them, however, seems imply "continuous" phrase period" literally, 189, If implies, temporary absences far different one issue case—for short vacation Wadman 329 812 1964), inadvertent train ride Canada while en route Buffalo Detroit, DiPasquale Karnuth, 158 878 (CA2 1947), one's tend ailing other type meaningful bearing attachment commitment country—would presumably treated differently today. Because need addressed event, continuous-physical-presence part company insofar contrary implied. (INS) taken argue, literally; nor brief question literally continuous, prerequisite oral argument, counsel stated "the [INS] believes room flexibility [§ 244]." Tr. Oral Arg., 8.1 express position agency charged responsibility administering fact petitioner's reasonable 244, address, implication otherwise, literally. 32 understand implicitly approves literal statute, error analysis patent. hornbook proposition "[a]ll receive sensible construction. terms limited lead injustice, oppression, absurd consequence. will always, therefore, presumed legislature exceptions language, avoid results character. law prevail over letter." Kirby, Wall. 482, 486-87, 278 (1868). Helvering Hammel, 311 504, 510, 61 368, 371, 85 303 (1941); Katz, 271 354, 362, 46 513, 516, 70 986 (1926). this, indeed consequences, 197, look beyond And compelling wooden indicates flexibly. 33 based factors: First, 1952 response abuses lenient "residence" requirement, effect 1948; second, imposed two-year foreign-born citizens seeking loss citizenship, explicitly Ante, 189-191. plainly, neither aspects sheds true, course, order prevent abuses, states, 190-191, identified hardly Canada, defeat reading 244. sought substantial described Senate Report total [but] long last years." S.Rept. 1515, 81st Sess. 602 (1950). Furthermore, true day leeway counterpart unwilling provide generous unrestricted surely indicate absence—however brief—to relief. acknowledges, direct statement follows, then, support giving interpretation. 34 opposite 1962 amendments rewrote version barely resembles original retains amendments.2 intent amendment, central viewed reflecting understanding revision, reveals imply. occasion McLeod Peterson, 283 180 (CA 1960). court reversed 8-month "does interrupt 244]," induced leave 187. explaining "sufficient rational effecting intent." Of enacts incorporates pre-existing law, knowledge interpretations adopted purposes law. Merrill Lynch, Pierce, Fenner Smith Curran, 353, 382, 66, 1825, 1841, 72 182 (1982); Lorillard Pons, 434 575, 580-581, 98 866, 869-870, 55 40 (1978). Therefore, explicit indications intent, justified concluding flexibly.3 35 enact originated S. 3361. As introduced, contained 249 249, 1929, allows confer permanent-residence meets qualifications, "good character," establishes resided statutorily date. 3361, 87th At operative June 28, moved December 24, 1952. Under bill, established regard continuous. House, declined amend 249. House sent Conference Committee differed 1940 entry section. 108 Cong.Rec. 22608 Committee, compromised versions adopting amendment instead compromise became 244.4 36 Basically, respects. compressed complicated system, sets relief, depending cause two-category system severity rise deportability. provision, offenses seven-year ten-year 1254(a)(2). Second, modified committed "exceptional extremely unusual hardship." 37 conferees, "[t]he now proposed designed achieve envisaged manner." H.Rept. 2552, (1962).5 That say, revised, extend residing earliest. then went explain revising rather liberalization constrained already built first, provision. Those were, personal granting grants review. 38 Committee's reported floor, manager "we largely restore title guide making obtaining approval ruling General," 23421 (1962) (statement Rep. Walter), another restated Report's congressional-review personal-hardship 23423 Feighan). reference formally titled Alien Registration particularly significant suspension-of-deportation impose 672 (1940).6 sufficient grant difficult see, 39 Similarly, various statements Senators debating belie instance, managers Senator Keating, "[n]o it, consideration conference report proposes it." 23448 pointed above, Senate's proposal, covered amounted stating rewritten them undoubtedly temporarily residency here. unless willing explanation principal sponsors was, reason, flatly wrong, conclude 1962, literally.7 sure, gain insight floor debate reports, always relied heavily authoritative proponents bills search legislation. Lewis 445 55, 915, 63 198 (1980); Federal Energy Administration Algonquin SNG, Inc., 426 548, 564, 96 2295, 2304, 49 (1976). necessity, where, here, introduced committee. remarks Keating managers, illuminate updating achieved, except 41 inescapable, proper free apply flexibly, unconstrained limitation imposed. substance, conforms 1967, Matter Wong, N (1967), apparently continues adhere. 197 1. 42 Court's way briefed parties, unnecessary unsupported history, certainly produce unreasonable never envisioned Congress, join opinion, concur delegate powers 1103. CFR 2.1 (1983) delegates power Commissioner Naturalization, permits redelegate appropriate regulations. delegated consider applications special officers, decisions (BIA), §§ 242.8, 242.21 (1983). 17-24. About month Thai passport. 21-22. departed allowing reenter After arrival aware husband's earlier, fact. 23-24. false hearing bar 18a-19a. establish either himself epileptic daughter, 19a-21a. "totality circumstances" articulated Kamheangpatiyooth, reaffirmed earlier 1964). 1256. principles (1963) (interpreting 1101(a)(13)), intervening interrupts 816. concluded, enunciated "evidentiary" resident's 1257. overturned finding character, reconsideration issue. 1018-1020. addition, 1016-1017. Petitioner questions rulings, seek certiorari them. 5. issues. moot. 1-6. asserts April, years. claims reverse mootness argument filed motion asking proceeding reopened, entirely discretion. 3.2 (1983); 143-144, 144, 5, 1030-1031, 1031, reopen proceeding, record determine Counsel's assertions satisfy short, become (1950) (criticism provision). (1952). qualify 214. require 1248. word-for-word, 244(b) served active service armed forces. BRENNAN cites statements, especially belief interpreted. post, 199- 205. These relate precedent suspension, explained: "Section or, cases, specified degree continuing future applicability 7- 10-year addition 23448-23449 1101(a)(13). defines as: "any coming having proves satisfaction port place outlying possession reasonably expected him properly determined exclusion, hearing. Landon Plasencia, 321, (1982). narrow "consistent 'extreme hardship' exceptional remedy." 145, Courts Appeals, uncertain about Fleuti's 244(a)(1), routinely See, e.g., Fidalgo/Velez 697 1026 (CA11 1983); 935 1981); Heitland 551 495 (CA2), cert. denied, 819, 59, 75 (1977). Solicitor admits Ninth Circuit's 1964 812, lower courts generally strict, ineligible absent period, 11-12 cases). Our frees strictures interprets written Contrary BRENNAN'S suggestion, 593, create 'room applying' chosen otherwise. (1967). purported adopt consistently. note infra. A major commentator field referred "drastic revis[ion]" C. Gordon H. Rosenfeld, Law Procedure 7.9a occasion, follow approach. J.M.D., 105 explanation, carry legislature, seem letter statute." 107. unchanged bill. Accord, supra Actually, Title 2, nothing kind. assume, "Title 3" misstatement. historical development Keating's rhetoric somewhat inaccurate extent implies means inaccuracy, detract basic thinking rejoinder. interpretation, inexplicably points sentence used present." statement, not, define words—the case—or employ entire concerned.

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