Contents:
- Article:
Divisible Statute Analysis - Reasonable Probability of
Prosecution
- 2008
Fall Seminar Series
- Article:
Removal Roceedings - Right to Impartial Immigration Judge
- Judge Improperly Acting as Prosecutor - Due Process
- New
2008 edition of Tooby's Crimes of Moral Turpitude now
available!
- Recent
Developments
- Tooby's
Guide to Criminal Immigration Law Now Available!
Article:
Divisible Statute Analysis - Reasonable Probability of Prosecution
Traditionally,
if consultation of the record of conviction did not establish
that the defendant was convicted of a charge that invariably
involved moral turpitude, the conviction would be presumed
not to involve moral turpitude where the government bore
the burden of proof. However, the United States Supreme
Court recently made a statement that might be interpreted
to suggest the noncitizen must also show a realistic probability
that the state in fact prosecutes defendants for offenses
that factually would fall outside the ground of deportation,
instead of merely imagining a set of facts that would arguably
fall within the crime but outside the ground of deportation.
As
a result, immigration authorities may require the noncitizen
to show a realistic probability of prosecution under the
state statute for conduct that falls outside the ground
of deportation. The paragraph giving rise to this issue
arose in the aggravated felony context, where a specific
aggravated felony category may be defined by a "generic"
definition of the terms used, the Supreme Court stated:
Moreover,
in our view, to find that a state statute creates a crime
outside the generic definition of a listed crime in a
federal statute requires more than the application of
legal imagination to a state statute's language. It requires
a realistic probability, not a theoretical possibility,
that the State would apply its statute to conduct that
falls outside the generic definition of a crime. To show
that realistic possibility, an offender, of course, may
show that the statute was so applied in his own case.
But he must at least point to his own case or other cases
in which the state courts in fact did apply the statute
in the special (nongeneric) manner for which he argues.
In James v.
United States, the Supreme Court further expanded on this
point in the context of determining whether attempted burglary
qualified as on offense posing a "serious potential
risk" of physical injury for purposes of the Armed
Career Criminal Act. Citing Duenas-Alvarez, the court announced:
We do not
view that approach as requiring that every conceivable
factual offense covered by a statute must necessarily
present a serious potential risk of injury before the
offense can be deemed a violent felony. . . . Rather,
the proper inquiry is whether the conduct encompassed
by the elements of the offense, in the ordinary case,
presents a serious potential risk of injury to another.
One can always hypothesize unusual cases in which even
a prototypically violent crime might not present a genuine
risk of injury-for example, an attempted murder where
the gun, unbeknownst to the shooter, had no bullets, see
United States v. Thomas, 361 F.3d 653, 659 (C.A.D.C.2004).
Or, to take an example from the offenses specifically
enumerated in § 924(e)(2)(B)(ii), one could imagine
an extortion scheme where an anonymous blackmailer threatens
to release embarrassing personal information about the
victim unless he is mailed regular payments. In both cases,
the risk of physical injury to another approaches zero.
But that does not mean that the offenses of attempted
murder or extortion are categorically nonviolent.
Although
counsel could argue that James applies in the context of
determining whether a "risk" exists (as in 18
U.S.C. § 16(b) crime of violence cases), a number of
courts have already cited this language in connection with
Duenas-Alverez as applied to other grounds of removal.
Duenas-Alvarez
and James could be said to be announcing two new tests -
first allowing courts to look to the realistic probability
that the state would apply the statute at issue to prosecute
the conduct that falls outside the ground of deportation,
as opposed to examining the minimum conduct punishable under
the statute, and second, allowing the courts to ask only
whether the ordinary and usual matter of commission of the
offense would fall within a ground of removal, rather than
requiring the court to examine the full range of conduct
punished. This interpretation would alter the categorical
analysis announced by Taylor, and reaffirmed by Shepard,
without any discussion justifying such a wide-scale change
in the law. In Duenas, however, the Supreme Court expressly
reaffirmed and applied the normal categorical and modified
categorical analysis, so this interpretation would not seem
to be justified.
The
Fifth and Ninth Circuits have taken different approaches
to applying these cases. The Fifth Circuit appears to take
a very narrow view -- requiring the noncitizen or defendant
to provide either personal evidence (from his or her own
case) or case law showing that the statute of conviction
reaches conduct that falls outside the definition of the
ground of deportation. In United States v. Ramos Sanchez,
the court rejected the contention that an indecent solicitation
statute at issue was overbroad because it could be used
to prosecute a minor. Even though the statute at issue had
been used to prosecute a 17-year-old for having sex with
his 15-year-old girlfriend, the court found that case inapplicable,
since the age of consent in Kansas was 16. The Fifth Circuit
has also applied the James "ordinary and usual matter"
test.
On
the other hand, the Ninth Circuit does not require the noncitizen
to provide "specific examples" of a state prosecuting
people "for acts that would fall outside the generic
definition of crimes of moral turpitude." Rather the
court stated that:
The issue
is not whether in some cases violators of section 32 have
been involved in a crime of moral turpitude. The issue
is whether everyone prosecuted under that section has
necessarily committed a crime involving moral turpitude.
There is nothing inherent in the crime of accessory after
the fact that makes it a crime involving moral turpitude
in all cases.
Likewise, in
finding that the California offense of leaving the scene
of an accident resulting in bodily injury was not a crime
of moral turpitude, the Ninth Circuit found that looking
to the statutory language, "a driver in an accident
resulting in injury who stops and provides identification,
but fails to provide a vehicle registration number, has
violated the statute." The court then rejected the
DHS's argument that such an offense would not be prosecuted:
We cannot
. . . ignore the plain language of § 20001(a). Duenas-Alvarez
does caution us against "conjur[ing] up some scenario,
however improbable, whereby a defendant might be convicted
under the statute in question even though he did not commit
the act encompassed by the federal provision." United
States v. Carson, 486 F.3d 618, 610 (9th Cir. 2007) (per
curiam). But where, as here, the state statute plainly
and specifically criminalizes conduct outside the scope
of the federal definition, we do not engage in judicial
prestidigitation by concluding that the statute "creates
a crime outside the generic definition of a listed crime."
Duenas-Alvarez, 127 S.Ct. at 822.
Other courts
may also follow this analysis.
The
Ninth Circuit is clearly right in holding that where non-deportable
conduct falls within the plain language of the statute defining
the criminal offense, no more proof is required. United
States v. Grisel, 488 F.3d 844, 850 (9th Cir.2007) (en banc)
(noncitizen need not meet Duenas realistic probability of
prosecution test for crimes where "a state statute
explicitly defines a crime more broadly than the generic
definition"). If the immigration court, however, insists
on proof of a reasonable probability of prosecution, counsel
can attempt to provide it by the following means:
(1)
Judicial decisions of the state of conviction showing prosecutions
for conduct falling outside the ground of deportation would
also clearly be sufficient.
(2)
Unpublished decisions are equally probative of this point,
since they reflect actual prosecutions for non-deportable
conduct. Vizcarra-Ayala v. Mukasey, 514 F.3d 870 (9th Cir.
Jan. 23, 2008) (court of appeals cites unpublished California
decisions to show that forgery is in fact prosecuted on
the basis of genuine documents falling within the statutory
definition of the state offense).
(3)
Moreover, counsel can examine pattern jury instructions.
If non-deportable conduct falls within them, it is very
hard for the government to argue there is no realistic probability
of prosecution, since every jury in every prosecution for
violating that statute is instructed to convict, under the
statute, for the non-deportable conduct.
(4)
Counsel could also offer an affidavit of a state prosecutor
or defense attorney as to the state's practices.
This article
is drawn from N. Tooby, J. Rollin & J. Foster, Crimes
of Moral Turpitude § 6.6(C) (3d ed. 2008)(forthcoming).
2008
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Article: Removal
Roceedings - Right to Impartial Immigration Judge - Judge
Improperly Acting as Prosecutor - Due Process
Immigration
counsel can argue that reversal of a removal order is required
when an immigration judge plays an improper prosecutorial
role in the proceedings. When the judge abandons his or
her role as an unbiased arbiter of fact and law, and becomes
a prosecutor, the court contravenes its responsibilities
as a neutral fact finder. It is well settled that a judge
must remain neutral. Marshall v. Jerrico, Inc., 446 U.S.
238 (1980). See also Schweiker v. McClure, 456 U.S. 188
(1982) (hearing officers serving in a quasi-judicial capacity
must meet the due process demand of impartiality). The Immigration
Court's decision should be reversed if the record clearly
demonstrates that the judge played a prosecutorial role
outside the scope of the court's responsibility as an unbiased
trier of fact and law. The judge clearly acts as an aggressive
prosecutor it s/he attempts to establish that the Respondent
was guilty of a crime. The Immigration Judge further exhibits
a prosecutorial tendency by examining respondent as if the
court were a tax official suspecting violations of the Internal
Revenue laws. The judge also demonstrates bias by subjecting
respondent to "post-trial" examinations which
merely reiterate the questioning previously conducted regarding
the arrest, his educational background, his student loans
and his tax returns. The Court of Appeals for the Ninth
Circuit chastised an Immigration Judge who exhibited bias
and prejudice during removal hearings by abandoning her
neutrality in violation of due process. Reyes-Melendez v.
INS, 342 F.3d 1001 (9th Cir. 2003). The Court reasoned that
"very early in the hearing, the IJ took over direct
examination ... [and] the IJ noticeably became aggressive
. . . ." (Id. at 1007.) The Immigration Judge may rely
on Yang v. McElroy, 277 F. 3d 158 (2d Cir. 2002), to justify
his or her role as fact-finder, but there are clearly limitations
on the manner in which s/he may appropriately develop the
record, especially when the respondent is represented by
counsel. (See United States v. Copeland, 376 F.3d 61, 71
(2d Cir. 2004) (explaining that an Immigration Judge has
the same duty to develop the record as the administrative
law judge in a social security case, especially when the
litigant is pro se and concluding the removal system "relies
on [the Immigration Judge] to explain the law accurately
to pro se aliens"); Secaida-Rosales, supra, at 306,
citing Qiu v INS, supra, at n.17 (recognizing the court
has not distinctly defined the Immigration Judge's role
in developing in the record when an alien is represented
by counsel). Stated succinctly by the Seventh Circuit, "discretion
is bounded by the applicant's right to receive a fair hearing."
(Podio v. INS, 153 F.3d 506, 509 (1998).) In Podio, the
judge frequently interrupted and took over the questioning
of the respondent. The judge in this case oversteps his
bounds as did the judges in Reyes-Melendez and Podio. The
Second Circuit has considered the limitations on a judge's
power to control deportation proceedings by ruling that
a respondent had not effectively waived his right to counsel,
allowing the judge to go forward on the merits of an application
for relief, even if the respondent had been given a single
two week continuance by the Immigration Court to locate
an attorney. (Montilla v. INS, 926 F.2d 162 (2nd Cir. 1991).)
Thanks to Sophie Feal. See also Cuko v. Mukasey, infra.
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Recent Developments
UNITED STATES
SUPREME COURT -- POST CON RELIEF - GROUNDS - VIENNA CONVENTION
Medellin v. Texas, ___ U.S. ___, 2008 WL 762533 (Mar. 25,
2008) (neither an International Court of Justice case, Case
Concerning Avena and Other Mexican Nationals (Mex. v. U.
S.), 2004 I. C. J. 12, nor a memorandum issued by the President
of the United States constitutes directly enforceable federal
law that pre-empts state limitations on the filing of successive
habeas petitions, affirming dismissal of a habeas petition
in a death penalty case raising a claim that petitioner
was not informed of his Vienna Convention right to notify
the Mexican consulate of his detention).
FIRST CIRCUIT
-- REMOVAL PROCEEDINGS - IMPARTIAL JUDGE - PROSECUTORIAL
QUESTIONING OF RESPONDENT
Cuko v. Mukasey, ___ F.3d ___ (1st Cir. Mar. 31, 2008) (petition
for review granted because IJ improperly assumed role of
a government attorney by engaging in "prosecutorial
questioning").See CD:15.25.
SECOND CIRCUIT
-- RECORD OF CONVICTION - DISMISSED COUNTS -- FACTS CHARGED
IN INDICTMENT NOT PART OF RECORD OF CONVICTION
James v. Mukasey, ___ F.3d ___, 2008 WL 763158 (2d Cir.
Mar. 25, 2008) ("We reminded the District Court that
"[f]actual matters considered as a basis for sentence
must have some minimal indicium of reliability beyond mere
allegation," and that "an indictment is not meant
to serve an evidentiary function. Its primary purpose is
to acquaint the defendant with the specific crime with which
he is charged...." Id. at 701 (internal quotations
marks omitted) (alteration in original). In this case, the
IJ and BIA relied upon a factual allegation in the charging
instrument -- that James had sexual intercourse with a sixteen-year-old
when he was twenty-two -- to conclude that James was convicted
of sexual abuse of a minor. But this factual allegation
was not "actually and necessarily pleaded" to
in order to establish the elements of endangering the welfare
of a child.").
SECOND CIRCUIT
-- JUDICIAL REVIEW - REMOVAL PROCEEDINGS - DENIAL OF RIGHT
TO COUNSEL OF CHOICE IS A VIOLATION OF DUE PROCESS
Waldron v. INS, 17 F.3d 511 (2d Cir. 1993), cert. denied,
513 U.S. 1014 (1994) (Immigration Judge errs by disqualifying
respondent's chosen counsel from representing the respondent,
which is a per se violation of due process in the Second
Circuit, regardless of whether prejudice is shown), citing
Montilla v. INS, 926 F.2d 162 (2d Cir. 1991); see Matter
of Santos, 19 I. & N. Dec. 103 (BIA 1984); Reno v. Flores,
507 U.S. 292, 306 (1993) (Fifth Amendment entitles noncitizen
to due process of law in deportation proceedings).
FIFTH CIRCUIT
-- AGGRAVATED FELONY - FRAUD OFFENSE - THEFT OFFENSE --
FRAUD AND THEFT HAVE DIFFERENT DEFINITIONS, SUGGESTING CONGRESS
DID NOT INTEND ANY OVERLAP
Martinez v. Mukasey, ___ F.3d ___ (5th Cir. Mar. 11, 2008)
("We must assume that, by giving separate definitions
to offenses "involving fraud and deceit" and "theft",
Congress intended them to be different. See, e.g., United
States v. Nordic Village, 503 U.S. 30, 36, 112 S.Ct. 1011,
117 L.Ed.2d 181 (1992). In this regard, we are mindful not
to construe a definition within § 101(a)(43) to be
"so broad that it is inconsistent with its accompanying
words, thus giving unintended breadth to the [INA]".
Gustafson, 513 U.S. at 575, 115 S.Ct. 1061 (quoting Jarecki
v. G.D. Searle & Co., 367 U.S. 303, 81 S.Ct. 1579, 6
L.Ed.2d 859 (1961)) (internal quotation marks omitted).").
CD:19.73, 19.94;AF:5.55, 5.78
FIFTH CIRCUIT
-- STATUTORY INTERPRETATION -- RULE OF LENITY - APPLIES
TO EXCLUSION QUESTION
Martinez v. Mukasey, ___ F.3d ___ (5th Cir. Mar. 11, 2008)
("Here, defining "admitted", as used in §
212(h), to exclude adjustment to LPR status subsequent to
entry, as was done by Martinez, is bolstered by the "longstanding
principle of construing any lingering ambiguities in deportation
statutes in favor of the alien". Cardoza-Fonseca, 480
U.S. at 449, 107 S.Ct. 1207 (citations omitted). This canon
of construction, comparable to the rule of lenity in criminal
cases, is based on the drastic nature of removal. "We
will not assume that Congress meant to trench on [the alien's]
freedom beyond that which is required by the narrowest of
several possible meanings of the words used." Fong
Haw Tan v. Phelan, 333 U.S. 6, 10, 68 S.Ct. 374, 92 L.Ed.
433 (1948). Therefore, this rule of narrow construction
provides an additional basis to construe § 212(h) in
favor of Martinez being able to seek a waiver of inadmissibility.").
CD:16.38;AF:4.41;CMT:6.7;SH:5.25
SEVENTH CIRCUIT
-- RELIEF - 212(H) WAIVER - 30 GRAM MARIJUANA EXCEPTION
- DRUG PARAPHERNALIA
Escobar-Barraza v. Mukasey, ___ F.3d ___, 2008 WL 656897
(7th Cir. Mar. 13, 2008) (noncitizen qualified for a waiver
of inadmissibility, under INA § 212(h), 8 U.S.C. §
1182(h), on account of a controlled substances conviction,
since his conviction for possession of drug paraphernalia
related to a single offense of simple possession of 30 grams
or less of marijuana). CD:24.29, 21.35;AF:2.45;CMT:3.44;SH:7.144
EIGHTH CIRCUIT
REMOVAL PROCEEDINGS - MENTAL COMPETENCY
Mohamed v. Tebrake, 371 F.Supp.2d 1043 (D. Minn. 2005) (IJ
must inquire as to respondent's mental competency, or 8
CFR § 1240.4 would be a nullity, and it was an abuse
of discretion not to inquire where person was in a mental
hospital and hearing was held via circuit television).
EIGHTH CIRCUIT
-- IMMIGRATION OFFENSES - SOCIAL SECURITY CARD IS NOT AN
IDENTIFICATION CARD
United States v. Murillo, ___ F.Supp.2d ___, 2008 U.S. Dist.
LEXIS 19568 (N.D. Iowa Mar. 13, 2008) (a "social security
card" does not constitute a "means of identification"
within the meaning of 18 U.S.C. § 1546(b) and 8 U.S.C.
§ 1324a(b), so the court grants defendant's motion
to dismiss Count 3); United States v. Tyson Foods, Inc.,
258 F. Supp. 2d 809 (E.D. Tenn. 2003) (a "social security
card" is not a "means of identification"
within the meaning of 18 U.S.C. § 1546(b), even if
this creates a "loophole" or appears inconsistent
with 18 U.S.C. § 1546(a)).
NINTH CIRCUIT
-- CD:20.6;CMT:8.6, 9.26, 9.39, 9.66, CHART
CRIME OF MORAL TURPITUDE - FALSE STATEMENT - FALSE IDENTIFICATION
TO POLICE OFFICER
Blanco v. Mukasey, 518 F.3d 714 (9th Cir. Mar. 3, 2008)
(California conviction of providing false identification
to a police officer, in violation of Penal Code § 148.9(a),
is not categorically a crime involving moral turpitude,
under INA § 212(a)(2), 8 U.S.C. § 1182(a)(2),
because the offense does not require fraudulent intent under
California law).
NINTH CIRCUIT
-- RELIEF - WAIVERS - 212(C) RELIEF - NINTH CIRCUIT TO REHEAR
ABEBE ON MATTER OF BLAKE ISSUE
The Ninth Circuit ordered that Abebe v. Gonzales, 493 F.3d
1092 (9th Cir. 2007) be reheard en banc. In Abebe, a panel
of the Ninth Circuit upheld the BIA's decision in Matter
of Blake, 23 I. & N. Dec. 722 (BIA 2005) (finding a
person convicted of sexual abuse of a minor is ineligible
for a 212(c) waiver). The BIA had reasoned that the aggravated
felony ground of removal had no statutory counterpart in
the INA § 212(a) grounds of inadmissibility, so INA
§ 212(c) could not waive deportation on account of
the conviction. CD:24.28;AF:2.44;CMT:2.43
TENTH CIRCUIT
-- AGGRAVATED FELONY - CRIME OF VIOLENCE
United States v. Rodriguez-Enriquez, __ F.3d __, 2008 WL
624433 (10th Cir. Mar. 10, 2008) (Colorado conviction for
assault two (drugging a victim), in violation of Colo.Rev.Stat.
Ann. § 18-3-203(1)(e) (2001), is not a crime of violence
for illegal re-entry sentencing purposes, since drugging
by surreptitious means does not involve the use of physical
force). CD:19.38;SH:7.46, 8.10;AF:5.19, A.14, B.9, B.5
STATUTES --
POST CON RELIEF - GROUNDS - STATE ADVISAL STATUTES
As of March, 2008, 28 states have adopted court rules or
statutes that require the court, at plea, to advise the
defendant concerning possible immigration consequences.
Alas.R.Crim.P. 11(c)(3)(C); Arizona Rules of Court, rule
17.2(f) (2004); Ark. Rules of Court, rule 17.2(f)(2004);
Cal. Penal Code § 1016.5 (West 1995); Conn. Gen. Stat.
Ann. § 54-1j (West 1994); D.C. Code Ann. § 16-713
(West 1994); Fla. R. Crim. P. 3.172(8) (West 1995); Ga.
Code Ann. § 17-7-93 (1997); Haw. Hawaii Stat. Ann.
§§ 802E(1), (2), (3) (West 1994); Id. Crim. Rule.
11(d)(1); Ill. Comp. Stat. 5/113-8 (2006); Iowa R. Crim.
Proc. 2.8(2)(b)(2005); Me. R. Crim. P. 11(b)(5) (West 2002);
Md. R. 4-242(e) (Michie 2001); Mass. Gen. Laws Ann. ch.
278, §29D (West 1994); Minn. Rule Crim. Proc. 15.01(10)(c)
(2000); Mont. Code Ann. § 46-12-210(1)(f) (1997); Neb.
Rev. St. §29-1819.02 (West 2003); N.M. Dist. Ct. R.Cr.P.
5-303(E)(5) (1992); N.Y. Crim. Proc. Law § 220.50 (7)
(McKinney 2001 Cum. Supp. Pamphlet); N.C. Gen. Stat. §
15A-1022 (a)(7) (West 1994); Ohio Rev. Code Ann. §
2943.031 (West 1989); Ore. Rev. Stat. § 135.385 (2)(d)
(1997); R.I. Gen. Laws § 12-12-22 (West 2003); Tex.
Code Crim. Proc. Ann. art. 26.13(a)(4) (West 1994); 13 S.A.
§ 6565; Wash. Rev. Code Ann. § 10.40.200 (West
1995); Wis. Stat. §§ 971.08(1)(c), (2) (West 1994).
CD:6.11
STATISTICS - IMMIGRATION HOLDS
Mar. 28, 2008
The head of Imigration and Customs Enforcement, Julie L.
Myers, announced to the House Appropriations Committee that
at least 304,000 immigrant criminals eligible for deportation
are behind bars nationwide. The annual number of deportable
immigrant inmates was expected to vary from 300,000 to 455,000,
or 10 percent of the overall inmate population, for the
next few years. She said DHS intended to speed the deportation
of immigrants convicted of the most serious crimes by linking
state prisons and county jails into federal databases that
combine FBI fingerprint files with DHS immigration, border
and antiterrorism records. In fiscal 2007, ICE statistics
indicate 164,000 immigrant inmates were charged in removal
proceedings with immigration violations to prepare the way
for deportation, and 95,000 immigrants with criminal histories
were deported.
RESOURCES -
IMMIGRATION ADVOCATES NETWORK - LEGAL INFORMATION
For a wonderful new website, with valuable resources on
criminal immigration law, among other topics, see http://www.immigrationadvocates.org/
RELIEF - NATURALIZATION
- TERMINATING REMOVAL PROCEEDINGS TO PURSUE NATURALIZATION
BEFORE DHS
AILF Practice Advisory sets out arguments to challenge Matter
of Acosta Hidalgo, a recent BIA decision holding that IJs
and the BIA lack jurisdiction to determine prima facie eligibility
for naturalization in order to terminate removal proceedings.
http://www.ailf.org/lac/pa/Acosta_Hidalgo_lac_pa_031808.pdf
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