United States v. Venegas-Vasquez
United States v. Venegas-Vasquez
Opinion of the Court
In this criminal case, the Court must decide whether a recipient of Deferred Action for Childhood Arrivals ("DACA"), who also was paroled into the United States, may be prosecuted for violating a federal law that prohibits an alien who is illegally or unlawfully in the United States from possessing a firearm. Defendant Emmanuel Venegas-Vasquez ("Venegas-Vasquez") is charged with one count of violating
BACKGROUND
Venegas-Vasquez is an alien citizen of Mexico. It is not disputed that Venegas-Vasquez unlawfully entered the United States as a child in 2001. Immigrations and Customs Enforcement ("ICE") records show that Venegas-Vasquez has applied for neither citizenship nor residence in the United States.
In September 2014, Venegas-Vasquez applied to USCIS under the DACA program. On January 22, 2015, USCIS granted Venegas-Vasquez DACA, and renewed his DACA in January 2018. In January 2015, the USCIS also provided Venegas-Vasquez with an employment authorization card, allowing him to work in the United States. In February 2015, the Social Security Administration issued a social security number to Venegas-Vasquez. In addition, in March 2016, Venegas-Vasquez applied for permission to travel to Mexico to visit his family. USCIS authorized Venegas-Vasquez for parole back into the United States under § 212(d)(5) of the INA, and Venegas-Vasquez was paroled back into the United States in 2016. ECF 16-10.
On May 26, 2017, police officers responded to two calls, one from Venegas-Vasquez' neighbor, who reported hearing gunfire, and another from Venegas-Vasquez' wife. Police arrived and took Venegas-Vasquez into custody. With Venegas-Vasquez' consent, the police searched his truck and found a loaded 9mm handgun and a loaded AK-47 style assault rifle. On February 4, 2018, a federal grand jury indicted Venegas-Vasquez for one count of violating
STANDARDS
Rule 12(b)(3)(B)(v) of the Federal Rules of Criminal Procedure"allows a defendant to file a pretrial motion to dismiss an indictment for failure to state an offense if the motion can be determined without a trial on the merits." United States v. Kelly ,
*1098
DISCUSSION
A. Statutory Interpretation and § 922(g)(5)
Section 922(g)(5) states that it shall be unlawful for any person "who being an alien--(A) is illegally or unlawfully in the United States; or (B) except as provided in subsection (y)(2), has been admitted to the United States under a nonimmigrant visa (as that term is defined in section 101(a)(26) of the Immigration and Nationality Act ( 8 U.S.C. 1101(a)(26) ) )" to possess in or affecting commerce, any firearm or ammunition. The statute provides no definitional guidance on what it means to be "illegally or unlawfully in the United States." See § 921 (defining terms for purposes of the statute).
"[S]tatutory interpretation turns on 'the language itself, the specific context in which that language is used, and the broader context of the statute as a whole.' " Nken v. Holder ,
Black's Law Dictionary defines "illegal" as "forbidden by law" and "illegality" as "an act that is not authorized by law" or "the state of not being legally authorized." BLACK'S LAW DICTIONARY 815 (9th ed. 2009). Black's Law Dictionary defines "unlawful" as "not authorized by law; illegal." BLACK'S LAW DICTIONARY 1675 (9th ed. 2009). Section 922(g)(5) uses these terms in their adverb form, modifying the phrase "in the United States." These dictionary definitions do not resolve a potential textual ambiguity in the statute, as argued by the parties: whether "illegally or unlawfully in the United States" means illegal or unlawful "presence" or illegal or unlawful "immigration status."
The statute does not expressly use the terms "present" or "presence;" nor does it use the terms "status" or "immigration status." Venegas-Vasquez emphasizes that by referring to individuals who are illegally or unlawfully in the United States , the focus of § 922(g)(5) is on the lawfulness of a person's physical presence in the United States, not their immigration status. In response, the Government emphasizes the lack of any mention of the word "presence" in the statute. The Supreme Court has cautioned that "we ordinarily resist reading words or elements into a statute that do not appear on its face." Dean v. United States ,
The Ninth Circuit has confirmed that physical presence was one of the elements *1099required for an alien to be "in the United States" for the purposes of § 922(g)(5)(A). U.S. v. Lopez-Perera ,
B. Presence versus Status
The Ninth Circuit has noted that the "terms 'presence' and 'status' are terms of art in the scheme of federal immigration law, and they are not necessarily interchangeable." Ariz. Dream Act Coal. v. Brewer ,
Contrary to the Government's position, unlawful presence is not synonymous with unlawful status. Other Circuits, as well as the Board of Immigration Appeals, have noted that
unlawful presence and unlawful status are distinct concepts in the argot of immigration specialists. It is entirely possible for aliens to be lawfully present (i.e. , in a "period of stay authorized by the Attorney General") even though their lawful status has expired. See In re L-K ,23 I. & N. Dec. 677 , 680-81 (BIA 2004) (distinguishing status and presence). Indeed, just that ordinarily happens when a person's status becomes unlawful while she has a pending adjustment application. See8 U.S.C. § 1182 (a)(9)(B)(iv).
Chaudhry v. Holder ,
will only describe the immigration status of an individual who is: (i) In lawful permanent resident status; (ii) An alien admitted to the United States in nonimmigrant status as defined in section 101(a)(15) of the Act, whose initial period of admission has not expired or whose nonimmigrant status has been extended in accordance with part 214 of *1100this chapter: (iii) In refugee status under section 207 of the Act, such status not having been revoked; (iv) In asylee status under section 208 of the Act, such status not having been revoked; (v) In parole status which has not expired, been revoked or terminated; or (vi) Eligible for the benefits of Public Law 101-238 (the Immigration Nursing Relief Act of 1989) and files an application for adjustment of status on or before October 17, 1991.
Before analyzing Venegas-Vasquez' arguments that his receipt of DACA and his being paroled into the country means that he was not "unlawfully present," this Court notes that the Seventh Circuit, at least implicitly, held in Chaudhry that the double negative of an alien being not unlawfully present under
C. No Unlawful Presence Based on DACA
Venegas-Vasquez argues that he was not unlawfully present due to his receipt of DACA. It bears repeating that an alien is unlawfully present for the purposes of the INA "if the alien is present in the United States after the expiration of the period of stay authorized by the Attorney General or is present in the United States without being admitted or paroled."
The Ninth Circuit also noted, in reference to the "Frequently Asked Questions" section of the website for USCIS that "it cannot be disputed that the FAQ section of a federal website is not a source of 'federal law,' nor would an interpretation announced there be subject to deference by a court." Brewer I ,
The Court therefore concludes that Venegas-Vasquez was not "unlawfully present" because his deferred action is a period of stay authorized by the Attorney General. The Court also concludes, however, *1101that Venegas-Vasquez has no formal immigration status based on his receipt of DACA. As a result, if "illegally or unlawfully in the United States" in § 922(g)(5) means or requires illegal or unlawful presence , then Venegas-Vasquez was not illegally or unlawfully in the United States, and the indictment must be dismissed. If, however, "illegally or unlawfully in the United States" means illegal or unlawful immigration status , then Venegas-Vasquez was illegally or unlawfully in the United States, and the indictment should not be dismissed.
The Government is correct that Congress did not contemplate DACA when it enacted § 922(g)(5), because DACA was first announced in 2012, and § 922(g)(5) became law in 1968. The Court, however, also finds persuasive Venegas-Vasquez's argument concerning the legislative history of § 922. The legislative history of that statute indicates that Congress intended this criminal law to apply to individuals who could "not be trusted to possess a firearm without becoming a threat to society." 114 Cong. Rec. 14, 773 (1968). Congressman Emanuel Celler, the House Manager of the Act, stated the "bill seeks to maximize the possibility of keeping firearms out of the hands of such persons" as "drug addicts, mental incompetents, persons with a history of mental disturbances, and persons convicted of certain offenses ...." 114 Cong. Rec. 21, 784 (1986). As the Supreme Court explained: "The very structure of the Gun Control Act demonstrates that Congress did not intend merely to restrict interstate sales but sought broadly to keep firearms away from the persons Congress classified as potentially irresponsible and dangerous." Barret v. United States ,
The Court agrees that the set of people Congress intended to prohibit from possessing firearms in § 922 is very different from the set of DACA recipients, who are required to report their address to the Government, who have intentionally revealed themselves to the Government through their DACA application, who are required to work and are therefore are not "living outside the law." and who cannot obtain DACA if they have been "convicted of a felony offense, a significant misdemeanor offense, multiple misdemeanor offenses, or otherwise pose[ ] a threat to national security or public safety." EXERCISING PROSECUTORIAL DISCRETION WITH RESPECT TO INDIVIDUALS WHO CAME TO THE UNITED STATES AS CHILDREN (June 15, 2012), https://www.dhs.gov/xlibrary/assets/s1-exercising-prosecutorial-discretion-individuals-who-came-to-us-as-children.pdf (last visited on April 15, 2019).
This legislative history was a component of the Fifth Circuit's decision in United States v. Orellana ,
*1102The Court notes that Orellana and other cases interpreting § 922(g)(5)(A) are imprecise in their usage of "presence" and "status" when describing the relevant analysis for whether an alien is illegally or unlawfully in the United States.
The state of the precedent in the Ninth Circuit is more complex. Although the Ninth Circuit has never addressed the specific question of whether an alien who has received DACA is illegally or unlawfully in the United States under § 922(g)(5)(A) in the precise context raised in this case, the Ninth Circuit has addressed the meaning of illegally or unlawfully in the United States in § 922(g)(5)(A) in other contexts. In United States v. Latu ,
After Latu , however, the Supreme Court has clarified that it has "never held that the Government's reading of a criminal statute is entitled to any deference." United States v. Apel ,
Normally, the Ninth Circuit's decision in Latu would be binding upon this Court. Nevertheless, that decision and other cases deferring to the ATF's interpretation of § 922(g)(5) are not controlling precedent when a Supreme Court decision has abrogated the principle of the previous decisions.
*1103Branch v. Tunnell ,
D. No Unlawful Presence Based on Parole
Venegas-Vasquez also argues that he was not unlawfully present in the United States because unlawful presence occurs "if the alien ... is present in the United States without being admitted or paroled."
E. Rule of Lenity
The question remains how to apply Venegas-Vasquez' lack of unlawful presence to § 922(g)(5). Because of Apel , the Court is left to conduct its own statutory analysis without deference to agency interpretation of a criminal statute. The Court concludes that Venegas-Vasquez' argument based on the rule of lenity is particularly persuasive. That rule "requires courts to limit the reach of criminal statutes to the clear import of their text and construe any ambiguity against the government." United States v. Romm ,
*1104United States v. Nader ,
The Court holds that § 922(g)(5) is coherent when "illegally or unlawfully in the United States" is defined either as "illegal or unlawful presence" or as "illegal or unlawful immigration status." No provisions are redundant, and the statute is not rendered absurd. As the Supreme Court has made clear:
Under a long line of our decisions, the tie must go to the defendant. The rule of lenity requires ambiguous criminal laws to be interpreted in favor of the defendants subjected to them. See United States v. Gradwell ,243 U.S. 476 , 485,37 S.Ct. 407 ,61 L.Ed. 857 (1917) ; McBoyle v. United States ,283 U.S. 25 , 27,51 S.Ct. 340 ,75 L.Ed. 816 (1931) ; United States v. Bass ,404 U.S. 336 , 347-349,92 S.Ct. 515 ,30 L.Ed.2d 488 (1971). This venerable rule not only vindicates the fundamental principle that no citizen should be held accountable for a violation of a statute whose commands are uncertain, or subjected to punishment that is not clearly prescribed. It also places the weight of inertia upon the party that can best induce Congress to speak more clearly and keeps courts from making criminal law in Congress's stead.
United States v. Santos ,
Several Justices of the Supreme Court, in discussing the rule of lenity, have stated that it is a
liberty-protecting and democracy-promoting rule that is "perhaps not much less old than construction itself." United States v. Wiltberger ,5 Wheat. 76 , 95,5 L.Ed. 37 (1820) (Marshall, C.J.); see, e.g., 1 W. Blackstone , Commentaries on the Laws of England 88 (1765) ("Penal statutes must be construed strictly"). As Chief Justice Marshall wrote, the rule is "founded on the tenderness of the law for the rights of individuals; and on the plain principle that the power of punishment is vested in the legislative, not in the judicial department." Wiltberger , supra, at 95. It forbids a court to criminalize an act simply because the court deems that act "of equal atrocity, or of kindred character, with those which are enumerated." Id. , at 96.
Abramski ,
CONCLUSION
The Court holds that the meaning of "illegally or unlawfully in the United States" in § 922(g)(5) is grievously ambiguous and uncertain and therefore that Venegas-Vasquez is entitled to the benefit of the rule of lenity. The indictment against him is dismissed.
IT IS SO ORDERED.
In this context, "parole" means an administrative practice by which USCIS grants an alien "permission to return to the United States." Hassan v. Chertoff ,
The Government notes that Latu also stated that the ATF regulation
does not necessarily foreclose Latu's argument that although he was unlawfully in the United States, his presence once again became lawful when he applied for adjustment of status. However, absent a statute preventing Latu's removability upon the filing of his application for adjustment of status, we can envision no interpretation that renders Latu's presence anything other than "illegal[ ] or unlawful[ ]." As applied to the facts of this case, Latu "is a nonimmigrant ... whose authorized period of stay has expired" and thus he meets the literal definition of the term "illegally or unlawfully in the United States."
Latu ,
Reference
- Full Case Name
- United States v. Emmanuel VENEGAS-VASQUEZ
- Cited By
- 1 case
- Status
- Published