Kabenga v. Holder
Kabenga v. Holder
Opinion of the Court
OPINION AND ORDER
I. INTRODUCTION AND BACKGROUND
Musafiri Kabenga is a Congolese national who first came to the United States in 1985.
On July 28, 2014, Kabenga returned to the United States and sought admission at John F. Kennedy Airport (“JFK”), believing — mistakenly—that he was permitted to return to the United States one year after his removal order.
Kabenga has filed a petition for Writ of Habeas Corpus before this Court, advancing the same argument as he advanced before the immigration judge. Kabenga believes that his 2012 removal order was legally deficient. In essence, he argues that under governing Fifth Circuit law, his 2002 offense was not a “crime of violence,” as the immigration court and Board of Immigration Appeals (“BIA”) held at the
At this juncture, the question before this Court is whether Kabenga’s expedited removal should be stayed pending the resolution of his petition for a Writ of Habeas Corpus. That question turns primarily on a threshold jurisdictional issue: may this Court, pursuant to its federal habeas jurisdiction, examine the legal sufficiency of Kabenga’s 2012 removal in order to determine whether he is still an LPR? Because I conclude that the answer is yes, and because the rest of the stay factors tilt in Kabenga’s favor, his motion is GRANTED.
II. APPLICABLE LAW
A. Stays of Removal
Stays of removal are governed by a four-factor test. Courts must consider: (1) whether the applicant has shown a likelihood of success on the merits, (2) whether the applicant will be irreparably injured absent a stay, (3) whether issuance of the stay will substantially injure the other parties interested in the proceeding, and (4) where the public interest lies.
B. Jurisdiction to Review Expedited Removal Orders
Expedited removal orders are subject to circumscribed habeas review.
In addressing these three questions, “the court’s inquiry shall be limited to whether such an order in fact was issued and whether it relates to the petitioner [and] [t]here shall be no review of whether the alien is actually inadmissible or entitled to any relief from removal.”
A. Federal Habeas Jurisdiction
Before reaching the substance of Kabenga’s stay motion, this Court must consider whether it has jurisdiction. In its motion to dismiss, the Government argues that under section 1252(e)(2) of the INA, federal habeas review is limited to “strictly ministerial” questions about an alien’s status,
For support, the Government relies on a number of appellate cases — including one from the Second Circuit
On December 24, 2014, the Government filed a sur-reply — at the Court’s request— to address the factual discrepancies between Kabenga’s case and those cited in the Government’s initial opposition papers.
The Government is correct that “Kaben-ga’s belief about his status, and his disagreement with the BIA’s 2012 decision, is irrelevant to the [habeas review] permitted by [section 1252(e) ].”
Ultimately, the Government has pointed to no case — -nor have I have been able to locate any — in which an alien who once had LPR status, has challenged expedited removal on the theory that he still is an LPR.
The Government admits, as it must, that section 1252(e)(2)(C) provides for some review of habeas petitions that maintain that the alien facing expedited removal is, in fact, an LPR. But the Government offers no theory for limiting the set of petitions to which the section applies — or for explaining why Kabenga’s petition falls outside its bounds. According to the Government, “[section] 1252(e)(2)(C) clearly applies to a person, unlike Kabenga, who could show the district court ‘evidence’ — most likely, a green card — of his or her unterminated LPR status.”
In short, section 1252(e)(2)(C) does not grant the court power to review claims that a petitioner “is an alien lawfully admitted for permanent residence” based on specific types of proof. Like any jurisdictional statute, section 1252(e)(2)(C) grants the court power to review such claims, period. Kabenga believes that the 2012 removal order is, in effect, a “legal nullity” because it misapplied clearly established law, giving rise to a “gross miscarriage of justice.”
B. Likelihood of Success on the Merits
Having determined that jurisdiction lies, the Court must now address whether Kabenga is entitled to a stay pending a decision on his habeas petition. The first factor is whether Kabenga is likely to succeed on the merits. That depends on two questions. First, did the 2012 order, when it categorized Kabenga as removable for committing a “crime of violence,” misapply existing law? Second, did this misapplication of law — assuming it occurred — rise to the level of a “gross miscarriage of justice,” sufficient to render the order a “legal nullity”?
Kabenga’s petition succeeds on both fronts. First, Kabenga has made a prima facie of showing of legal error. He has cited to a number of cases, across multiple jurisdictions, suggesting that the offense he was convicted of in 2002 is not categorically a “crime of violence.”
C. The Other Factors
The Government has made no attempt to argue that the third and fourth factors — hardship to the counter-party (which in this case would be the Government itself), and considerations of public interest — weigh against granting a stay. Instead, it has focused on the “irreparable harm” prong. According to the Government, “Kabenga has not shown that his physical presence is necessary in this proceeding,” which means that if Kabenga is removed between now and when the Court rules on his habeas petition, he will still be able to participate in the case.
In Nken v. Holder, the Supreme Court held that deportation is not a “categorically irreparable” harm.
This seemingly minor caveat has significant repercussions for a petitioner — like Kabenga — who lacks the means to fund his return to the United States. Just last month, Judge Jed Rakoff of this District expressed concern about the Government’s policy of selectively financing post-removal travel. The policy is “troubling,” Judge Rakoff wrote, because for “many [indigent] aliens, the financial burden of removal may, as a practical matter, preclude effective relief.”
IV. CONCLUSION
For the reasons set forth above, Kaben-ga’s motion for a stay of removal is GRANTED. The Government is directed to submit a supplemental brief, of no more than fifteen pages, by January 19, 2015. Petitioner is directed to submit a supplemental reply, of no more than ten pages, by February 2, 2015. Both sets of papers should be addressed to the merits of Ka-benga’s habeas petition.
SO ORDERED.
. See Petition for Writ of Habeas Corpus ("Pet.”), II2. Throughout this Opinion, facts are drawn from Kabenga’s habeas petition.
. See id. ¶ 13.
. See id. ¶¶ 14-17.
. See id. ¶ 19.
. See id. ¶ 20.
. See id.
. See id. See also 11/10/14 Order of Immigration Judge Alan L. Page, Exhibit ("Ex.”) F to Pet.
. See Pet ¶¶ 23-37.
. Id. It 22.
. See Nken v. Holder, 556 U.S. 418, 434, 129 S.Ct. 1749, 173 L.Ed.2d 550 (2009).
. Id.
. See 8 U.S.C. § 1252(e)(2)(A) (“no court shall have jurisdiction to review ... except as provided in subsection (e) of this section, any individual determination or to entertain any other cause or claim arising from or relating to the implementation or operation of [an expedited removal order].”).
. Id. § 1252(e)(2)(A).
. Id. § 1252(e)(2)(B).
. Id. § 1252(e)(2)(C).
. Id. § 1252(e)(5).
. Garcia de Rincon v. Department of Homeland Sec., 539 F.3d 1133, 1139 (9th Cir. 2008) (emphasis added). Accord Shunaula v. Holder, 732 F.3d 143, 147 (2d Cir. 2013) (agreeing with the Ninth Circuit).
. Memorandum in Opposition to Petitioner’s Motion for Stay of Removal (“Opp. Mem.”), at 6.
. Id. sí 1 (emphasis in original) (quoting 8 U.S.C. § 1252(e)(5)).
. See Shunaula, 732 F.3d at 145-47.
. See 12/18/14 Order (Dkt. No. 10).
. In fact, one of the cases that the Government invokes for support—Li v. Eddy—contemplates this vety distinction. There, the Ninth Circuit held that it (as well as the district court) lacked jurisdiction to hear a challenge to an expedited removal order from an alien who had never been admitted to the United States. In so holding, however, the court "emphasize[d] that this case does not implicate the jurisdictional issues that would be raised had Li been lawfully admitted to this country.” Li v. Eddy, 259 F.3d 1132, 1135 (9th Cir. 2001), vacated on reh'g as moot, 324 F.3d 1109 (9th Cir. 2003) (emphasis added). Accord Sur-Reply in Further Support of the Government's Motion to Dismiss Kabenga's Habeas Petition (“Sur-Reply”), at 2 n. 1 (explaining that “although Li was vacated on mootness grounds, 'the case [remains] analytically sound'”) (quoting Garcia de Rincon, 539 F.3d at 1141 n. 4). In other words, the Ninth Circuit explicitly refrained from extending section 1252’s jurisdictional bar to petitions brought by aliens like Kabenga.
. See Sur-Reply.
. Id. at 1 (quoting 12/18/14 Order) (emphasis omitted).
. Id.
. Id.
. Id.
. It is true — as the Government appears to suggest — that section 1252(e)(2)(C) is difficult to reconcile with section 1252(e)(5). Whereas section 1252(e)(2)(C) permits courts to determine whether an alien “is an LPR ... a refugee ... or [an asylum grantee],” section 1252(e)(5) precludes courts from examining whether an alien “actually is admissible." How a court is supposed to perform the first operation' — which requires assessing the basis of an alien’s admissibility — while avoiding any inquiry into an alien’s actual admissibility is unclear. What is clear is that ambiguities in the immigration laws should be construed (1) in favor of aliens, and (2) in favor of avoiding potential constitutional problems. See INS v. Cardoza-Fonseca, 480 U.S. 421, 449, 107 S.Ct. 1207, 94 L.Ed.2d 434 (1987) (explaining that "lingering ambiguities in deportation statutes” should be construed "in favor of the alien”); INS v. St. Cyr, 533 U.S. 289, 298-314, 121 S.Ct. 2271, 150 L.Ed.2d 347 (2001) (explaining that the Suspension Clause applies to deportation decisions, and that attempts to limit the scope of habeas jurisdiction in the removal context therefore trigger constitutional scrutiny). Here, both principles support the same result: that section 1252(e) permits review of Kabenga’s petition.
. The most analogous case I found — after reviewing every Circuit Court case on point and nearly one hundred trial court decisions—is Al Khedri v. Sedlock, in which the petitioner had been a conditional LPR. See No. 09 Civ. 6483, 2009 WL 3380681 (N.D.Ill. Oct. 20, 2009). While his application to become a permanent LPR was pending, he voluntarily traveled outside the country. While abroad, he learned that his petition for per'manent LPR status had been denied. When he sought to reenter the United States, an expedited removal order was issued. He filed a habeas petition challenging this order, claiming that he still had conditional LPR status because he was appealing the denial of his petition for permanent LPR status. The district court held that - because an alien’s conditional LPR status is revoked as of the date of the denial of his petition to remove conditions and become a permanent LPR, he cannot be considered an LPR while petitioning for review of the revocation of status. See id. at *3 (citing 8 U.S.C. § 1186a(c)(3)(C) (applying solely to conditional LPR status)). Accordingly, the court decided it lacked jurisdiction under 1252(e)(2)(C) to adjudicate the habeas petition.
This case is clearly distinguishable from Kabenga’s. Kabenga had LPR status for twenty years. Unlike Al-Khedri his argument is not that the removal decision lacks finality because it is being appealed — and of course he was not a conditional LPR. His argument is that the removal decision was erroneous
. That Kabenga’s case differs so plainly from other cases concerning section 1252(e) also disposes of the Government’s alternative argument that reviewing Kabenga's petition would ”enormous[ly]” undermine the jurisdiction-stripping provisions of the INA — provisions that Congress crafted to mitigate the administrative difficulty of removal. Rep. at 3. This argument is not convincing. Petitions like Kabenga's — where an alien claims that his status as an LPR was never properly revoked — are the exception, not the norm. The norm are petitions like those considered in the appellate case law, where an alien who has never been admitted to the United States tries to use habeas review to secure admission. Exercising jurisdiction over Kabenga’s petition will in no way hamper the ability of immigration officials to efficiently dispose of garden variety challenges to expedited removal.
. Sur-Reply at 1.
. Petitioner's Reply to Respondent’s Motion to Dismiss (''Rep.”), at 5.
. See Pet. ¶ 22. See also Rep. at 5.
. See Pet. ¶ 23.
. Id. ¶¶ 22, 28.
. Id. ¶ 22.
.Opp. Mem. at 13.
. Id. (quoting 4/24/12 Letter from Michael R. Dreeban, Deputy Solicitor General, to Hon. William K. Suter, Clerk, Supreme Court of the United States (“4/2/14 Letter”), Ex. G to Pet., at App'x B).
. 556 U.S. at 435, 129 S.Ct. 1749.
. Id. (citing to the Government's brief).
. See 4/24/12 Letter.
. ICE Regulation on Facilitating the Return to the United States of Certain Lawfully Removed Aliens (“ICE Reg.”), Ex. H to Pet., at 1-2.
. National Immigration Project v. Department of Homeland Sec., No. 11 Civ. 3235, 2014 WL 6850977, at *5 (S.D.N.Y. Dec. 3, 2014).
. ICE Reg. at 1.
Reference
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- Musafiri G. KABENGA v. Eric H. HOLDER, Jr.
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