Andres Felipe Arias Leiva v. Warden
Opinion
The Colombian Supreme Court convicted Andres Arias Leiva of committing two crimes while he served as the country's Minister of Agriculture. Although Arias 1 attended his trial, he did not wait for the verdict; having anticipated a politically motivated conviction, Arias left for the United States, where he has lived ever since. Now Colombia wants him back. The United States plans to honor that request and extradite Arias under a treaty that the two countries signed in 1979. But while in prison pending his surrender to Colombia, Arias filed a petition for a writ of habeas corpus to block his extradition. The district court denied that petition.
Now on appeal, Arias's chief argument is that the United States cannot extradite him under the Extradition Treaty because it is not in effect. Arias is right that, in 1986, the Colombian Supreme Court nullified the domestic legislation that ratified the treaty and that as a result Colombia no longer relies on the treaty when sending fugitives to the United States. But the frailty in his argument is that our Executive Branch-not Arias and not this Court-gets to decide what impact, if any, the Colombian court's ruling had on the treaty's status as between the parties. And, according to the Department of State, both countries continue to recognize the compact as valid and in force. Under the separation of powers established in and demanded by our Constitution, the *1284 Judicial Branch cannot second-guess that political judgment call or indulge whatever our own views on the matter may be. We therefore affirm the district court's denial of Arias's petition for a writ of habeas corpus.
I.
A.
First, the facts. Arias served as Minister of Agriculture in President Alvaro Uribe's administration from 2005 to 2009. During that time, he ran a development program known as Agro Ingreso Seguro (AIS), which sought to modernize Colombia's irrigation system by providing subsidies to farmers. In support of that goal, the Ministry entered into three contracts with an organization called the Inter-American Institute for Cooperation on Agriculture (IICA)-although the point of that partnership remains in dispute. According to Arias, the Ministry sought the IICA's help with implementing scientific and technical endeavors; the current Colombian government claims that the IICA merely administered the program's funds. In any event, no one disputes that the program disbursed funds worth millions of dollars to Colombian farmers, making Arias one of the administration's most popular cabinet members.
In 2009, Arias resigned his post so that he could run for the presidency after Uribe's final term. He campaigned for his party's nomination against another former cabinet member, Juan Manuel Santos, who had served in the Uribe administration as Minister of Defense. Despite an early lead in the polls, Arias faltered after certain news reports accused him of diverting AIS funds to wealthy landowners in return for political patronage. Arias claims that Santos fueled these reports through his family-owned media outlets, which succeeded in boosting Santos's political standing. In the end, Arias lost the nomination to Santos, who won the general election and took office in 2010. From then on, Arias remained a prominent and vocal critic of the incoming government.
In 2011, the new administration's Attorney General charged Arias with two crimes based on his implementation of the irrigation subsidies program: (1) Conclusion of Contract Without Fulfilling Legal Requirements and (2) Embezzlement for Third Parties. For the first crime, the Colombian government alleged that Arias falsely designated contracts as "scientific and technical" in order to bypass a public bidding process. Colombian law normally requires government agencies to award contracts based on public bids but exempts projects that call for scientific and technical expertise. In those situations, the agency can negotiate directly with a given contractor from the start. According to the Colombian government, Arias abused this carveout to fast-track the subsidy program and ensure that his preferred contractor, the IICA, managed the process.
Next, the Colombian government claimed that Arias funneled millions in program subsidies to eleven families even though he knew that they did not qualify. He purportedly allowed these select applicants to subvert the grant process by "subdividing" their farms and submitting duplicate applications so that they could obtain more benefits than they deserved-that is, multiple subsidies for what had been a single property. In the Colombian government's telling, Arias knew about and sanctioned these illegal allotments to curry political favor in advance of his presidential run.
Arias was tried in the Colombian Supreme Court starting in June 2012. His trial lasted nearly two years and involved 57 witnesses, including the defendant himself. Arias, represented by counsel, disputed both charges. He argued, among other *1285 things, that the Ministry's contracts complied with the relevant procurement laws and that he had no hand in third-party attempts to manipulate the subsidy grant process. The court ultimately rejected those defenses, finding that Arias knowingly violated the public bidding requirement and actively facilitated the diversion of government funds.
Before the court could render that decision, however, Arias-fearing that he would be convicted as a political target-left the country. Given their rivalrous history, Arias had begun to suspect that President Santos had rigged the result of the trial to silence his political foe. To that end, Arias reached out to an American diplomat, who he claims helped pave the way for him to enter the United States. Arias arrived in this country in June of 2014. After he was followed by his wife and two children, he filed a petition for asylum-a petition that, to this day, remains pending. About one month later, the Colombian Supreme Court convicted Arias in absentia and sentenced him to 17 years in prison. Shortly following the conviction, Colombia asked the United States to extradite Arias so that he could "serve the sentence."
B.
In response to Colombia's request, the United States filed a complaint for extradition in the district court under
Once a magistrate judge certifies an extradition, as happened here, extradition targets do not have the benefit of a direct appeal.
See
Martin v. Warden, Atlanta Pen.
,
Given those limits, the "scope of habeas corpus review of a magistrate's order of extradition is quite narrow."
Hill v. United States
,
*1286
Kastnerova
,
In the face of these limitations, Arias argued to the district court that the magistrate judge lacked jurisdiction at the outset because the Treaty is not in force. The United States pointed out in response that the Treaty took effect on March 4, 1982, when the parties exchanged instruments of ratification. Arias nonetheless relied on a 1986 ruling by the Colombian Supreme Court, which found that the Colombian law ratifying the Treaty was unconstitutional-specifically, that the legislation had been signed by a government official other than the Colombian President. Arias also claimed that his alleged conduct would not violate United States law and that the Treaty restricts extraditable offenses to those that are punishable in both countries. Finally, he insisted that his conviction does not constitute competent evidence to sustain the extradition charge because it was rendered by a corrupt and biased court.
As for the United States, the Department of State's Assistant Legal Adviser for Law Enforcement and Intelligence, Tom Heinemann, filed a declaration confirming that the official position of the United States is that the Extradition Treaty remains valid and in effect. Mr. Heinemann also submitted a diplomatic note from the Colombian government stating its own view that the Treaty "continues currently in force." The district court deferred to the Executive's judgment that the Treaty remains in force and thus moved past the jurisdictional phase of its inquiry.
Next, the district court concluded that the charged crimes-namely, the diversion of government subsidies and the knowingly false designations of government contracts-would violate our federal law if indeed they were committed, and therefore qualified as extraditable offenses. The district court also declined to delve into the asserted bias and corruption of the Colombian Supreme Court, cautioning that only the Executive Branch can properly evaluate the fairness of Colombia's judicial system in deciding whether to grant extradition.
II.
Arias has appealed those determinations. "On review of a denial of a habeas petition regarding the issuance of a certification of extraditability, we review factual findings for clear error and questions of law de novo."
Meza v. U.S. Att'y Gen.
,
III.
A.
We have long observed that the judicial role is narrow when it comes to treaty
*1287
recognition and matters of extradition.
See, e.g.
,
Meza
,
The necessity of this deferential approach is inherent in the Constitution's text and design-in particular, in its allocation of powers. Article II states that the President "shall have Power, by and with the Advice and Consent of the Senate, to make Treaties, provided two thirds of the Senators present concur." U.S. Const. art. II, § 2, cl. 2. This language-known as the Treaty Clause-vests exclusive authority over treaty formation in the political branches. Article III, which establishes the federal judicial power, extends that power to cases "arising under this Constitution, the Laws of the United States, and Treaties made, or which shall be made, under their Authority." U.S. Const. art. III, § 2, cl. 1. But "this passage does not speak to whether the court's jurisdiction extends to challenges to the treaty-making procedures employed by Congress and the President."
Made in the USA Found. v. United States
,
Based on those distinct textual commitments, the Supreme Court long ago held that deciding whether a foreign power had authority to ratify a treaty involves "political questions" that "belong exclusively to the political department of the government."
Doe v. Braden
, 57 U.S. (16 How.) 635, 657,
The Supreme Court fortified that view nearly 50 years later when it deferred to the Executive's position that an extradition treaty between the United States and Prussia remained valid following the formation of the German Empire.
See
Terlinden v. Ames
,
Lower courts have followed that directive in deferring to the Executive Branch's position regarding treaty recognition.
See, e.g.
,
Meza
,
*1288
New York Chinese TV Programs, Inc. v. U.E. Enters., Inc.
,
We therefore have no answer but this: the Treaty remains in effect. That means, in turn, that the United States can rely on it when extraditing fugitives to Colombia. And although Arias rightly notes that federal law requires "a treaty or convention for extradition,"
Arias, however, seems to reason that the 1986 ruling retroactively cancelled the effect of that ratification and exchange between the parties. But both signatories continue to officially recognize the Treaty-notwithstanding the Colombian Supreme Court's ruling that the Colombian official who ratified the Treaty lacked the power to act in that capacity. Cf. Braden , 57 U.S. at 657 (declining to second-guess the Executive's judgment that "the person who ratified the treaty on behalf of a foreign nation had the power, by its constitution and laws, to make the engagements into which he entered"). In fact, although both Colombia and the United States remain free to terminate the Treaty "at any time by giving notice to the other Party," neither nation has ever done so. Extradition Treaty, Colom.-U.S., supra , art. 21, S. Treaty Doc. No. 97-8, at 8.
The Colombian Supreme Court's 1986 ruling does not demand-or, more fundamentally, allow-a different result. According to the governments of the United States and Colombia, that domestic ruling limited the manner in which the Colombian government can extradite individuals to the United States. But it did not impact the United States' ability to extradite fugitives under the Treaty. The Department of State's legal adviser, for his part, acknowledged that the ruling may have had an effect "under the internal law of Colombia," but emphasized that "the United States has never considered that the Colombian court's decisions had the effect of terminating or suspending the operation of the Treaty." And the Colombian government likewise asserted that the ruling was "exclusively of internal nature" and did "not affect" the Treaty's validity as a matter of international law.
*1289
We are loath to override the position of the United States on matters of extradition, which, after all, "is an executive function derived from the President's power to conduct foreign affairs."
Noriega
,
To be clear, we are deferring to the Executive's judgment on a
political issue
-that is, treaty recognition. We need not ponder the outer bounds of that deference, if any, when it comes to
historical facts
surrounding treaty formation and termination. Here, the parties do not question what the Treaty says. Nor do they dispute what the Colombian Supreme Court ruled. Their disagreement centers on the impact that the Columbia ruling had on the Treaty's ongoing validity, but that determination is simply "not judicial."
Braden
, 57 U.S. at 657. It belongs to the Executive Branch alone.
See
Terlinden
,
Of course, courts retain an independent duty to interpret treaties-extradition or otherwise-just as they do for any statute, Constitutional provision, or other source of law.
See, e.g.
,
United States v. Alvarez-Machain
,
Given these understandings about the division of authority and expertise between the executive and judicial branches, we must be careful to "observe the line between treaty interpretation on the one hand and negotiation, proposal and advice and consent and ratification on the other."
Franklin Mint Corp. v. Trans World Airlines, Inc.
,
None of Arias's arguments against this constitutional deference succeeds. First , Arias claims that we should consider the Treaty valid only if the signatory nations *1290 act like it is; instead of listening to what they say, we should look at what they do. On that score, Arias claims that Colombia has not invoked the Treaty when processing extradition requests made by the United States since the 1986 ruling. To back up this assertion, he also cites the Supreme Court's decision in Terlinden and our decision in Kastnerova , which, to be fair, both analyzed country conduct in determining whether a given treaty remained in force. Still, neither of those cases requires-or, again, even allows-undertaking that kind of analysis here.
We will concede some tension. In
Terlinden
, the Supreme Court did state that when deciding whether an extradition treaty has been terminated, "governmental action in respect to it must be regarded as of controlling importance."
Here, we need not scrutinize Colombia's conduct because we already know its official position, which the Department of State has accepted and likewise endorsed-that the treaty is in force between the two countries. Moreover, no one asserts that Colombia is seeking to invoke a predecessor government's treaty with the United States, as was the case for the German Empire in
Terlinden
. And in any event,
Terlinden
's consideration of the would-be foreign signatory's behavior came alongside the Supreme Court's numerous statements regarding the inherent authority of the Executive Branch over the issue of treaty recognition.
See, e.g.
,
Terlinden
,
Similarly, in
Kastnerova
, this Court analyzed whether an extradition treaty with the former Czechoslovakia remained in force between the United States and the newly formed Czech Republic.
See
*1291
Moreover, even if Colombia's alleged conduct violated the Treaty, a violation would not render the Treaty itself
invalid
. Nor would it give us license to reach that conclusion. As the Supreme Court explained in the
Head Money Cases
, a "treaty is primarily a compact between independent nations," and so the remedy for its infraction depends on how "the injured party chooses to seek redress."
Second
, Arias asserts that our own precedent requires us to find that Colombia's conduct has invalidated the Treaty, regardless of what we might conclude on a fresh look at the question. To support this contention, he cites
United States v. Gallo-Chamorro
,
Setting aside that at least two of these cases-
Gallo-Chamorro
and
Duarte-Acero
-mentioned this issue only in dicta, these decisions do not control the outcome here because they only describe the Treaty's operation
in Colombia
. Indeed, all three opinions involve Colombia's ability, under Colombian law, to rely on the Treaty when extraditing fugitives to the United States.
See
Gallo-Chamorro
,
*1292
Third
, Arias insists that magistrate judges exercise Article III power in extradition proceedings and therefore cannot defer to the Executive because doing so would abdicate the judicial role. The government counters that extradition proceedings "do not arise under Article III." And, in fact, courts differ on this point.
Compare
DeSilva v. DiLeonardi
,
But this issue is largely academic for our purposes. Whether or not magistrate judges exercise Article III power in extradition proceedings, they do not violate judicial authority by deferring to the Executive on matters of treaty recognition. The same holds true for this Court and the district court below, which assuredly act in Article III capacities in habeas proceedings.
Cf.
DeSilva
,
In sum, we will not transgress the boundaries of our constitutional authority to perform our own analysis of Columbia's domestic law or offer our own evaluation of Columbia's conduct under the Treaty. It is enough for us to say that we accept the Executive Branch's determination that it is still in force.
B.
Turning to Arias's other arguments, we conclude that the district court did not err in finding that the Treaty covers the two offenses charged in the extradition complaint. Article 2 defines "Extraditable Offenses" as crimes that are "punishable under the Federal laws of the United States and the laws of the Republic of Colombia." Extradition Treaty, Colom.-U.S.,
supra
, art. 2, S. Treaty Doc. No. 97-8, at 1. This requirement, known as "the dual or double criminality principle," marks a standard provision in "[m]ost extradition treaties."
United States v. Herbage
,
Here, the answer is yes. The acts charged in this case-the embezzlement of government funds and the knowingly false designation of government contracts-would violate federal law if those acts occurred here. Importantly, we need not compare each country's criminal code and ask whether a given Colombian statute has an exact American analog. The "name by which the crime is described in the two countries" need not be the same.
Collins v. Loisel
,
On the embezzlement charge, Arias argues that the charged conduct would not violate United States law because the Colombian government alleged only that he "allowed" others to commit fraud and not that he knowingly participated in their scheme. He insists that federal law does not criminalize the mere failure to prevent third party wrongdoing, which, in his view, is all that happened here. His point, however, mischaracterizes the extradition complaint, which states that he not only "knew about" the improper diversion of government funds to undeserving recipients but actually "ensured the favorable treatment." The complaint further alleges that Arias wielded his influence over the IICA-managed grant process "to direct the public funds to specific agricultural sectors"-namely, "areas that were politically strategic to his presidential aspirations." Whether or not he committed such acts, we cannot say that the district court erred in concluding that the conduct as alleged would violate our own prohibition on diverting government funds.
As for the contracts charge, Arias asserts that the Colombian regulation defining the terms "scientific or technological" is so vague that his designations could not have been materially false, and thus would not violate United States law. But that argument would require us to adjudicate the
merits
of the charge-that is, decide whether Arias's designations were false. The dual criminality inquiry asks only whether "the particular
act charged
," taken as true, would be "criminal in both jurisdictions."
Collins
,
And let us reiterate-a conclusion that the acts charged would be illegal in the United States is not the equivalent of a conclusion that the foreign fugitive committed them. After all, when assessing dual criminality, we look only at the charges on paper; it is up to the courts of the requesting country to adjudicate their merits.
C.
Finally, we conclude that the evidence meets the Treaty's requirements for extraditing individuals who have already been convicted. The Treaty provides that when an extradition request "relates to a
convicted
person," such as Arias, the requesting party needs to submit only a "copy of the judgment" and evidence "proving that the person sought is the person to whom the conviction refers." Extradition Treaty, Colom.-U.S.,
supra
, art. 9(4), S. Treaty Doc. No. 97-8, at 4 (emphasis added). Neither party disputes that Arias was convicted or that Colombia submitted the required proof here.
4
We cannot weigh the underlying evidence ourselves to gauge whether we would agree with that conviction. As we have explained, on habeas corpus review, our review is "limited to determining ... whether there was any evidence warranting the finding that there was reasonable ground to believe the accused guilty."
Martin
,
Arias concedes this "general rule" but argues that it cannot apply "in this novel situation" because his conviction was the product of a "corrupt, biased court." Given that alleged injustice, Arias claims that "Article 9(4) of the Treaty does not resolve the matter." In his view, we cannot credit such politically tainted convictions. Yet neither the Treaty nor any other law carves out this sort of exception-at least not one that the judiciary can invoke. And although the Treaty does prohibit extraditions based on requests "of a political character," it reserves those determinations for the "
Executive Authority
of the Requested State." Extradition Treaty, Colom.-U.S.,
supra
, art. 4, S. Treaty Doc. No. 97-8, at 2 (emphasis added). So, while Arias may raise serious concerns about the motivation for his prosecution, the fairness of his trial, and the severity of his sentence, he must direct those complaints to the Executive Branch.
See
Martin
,
To hold otherwise would also contravene the "rule of non-inquiry," which precludes courts "from assessing the investigative, judicial, and penal systems of foreign nations when reviewing an extradition request."
Martin
,
The rule applies even though a foreign court's procedures might differ from our own traditions.
See
Martin
,
D.
We likewise reject Arias's attempt to invoke the act-of-state doctrine, "a judicially-created rule of decision that 'precludes the courts of this country from inquiring into the validity of the public acts a recognized foreign sovereign power committed within its own territory.' "
Glen v. Club Méditerranée, S.A.
,
That argument fails for numerous reasons, including and especially that magistrate judges do not decide the
legality
of a fugitive's conduct-as we have explained, they do not "inquire into the guilt or innocence of the accused."
Kastnerova
,
* * *
At the end of the day, we do not consider or decide whether the United States should extradite Arias. Indeed, we cannot; that judgment rests with the Executive Branch alone. Mindful of our modest role, we hold simply that the law does not preclude it.
AFFIRMED.
We refer to the petitioner as "Arias" because that is the name he chose to use in his briefing.
Specifically, the Colombian law was signed by a Senior Minister of the government to whom the Colombian President had delegated various executive functions while the President was out of the country. See Igor I. Kavass, Colombia: Supreme Court Decision on Law Concerning the Extradition Treaty Between Colombia and the United States , 27 Int'l Legal Materials 492, 495 (1988).
Arias also cites
Blake v. Am. Airlines, Inc.
,
Article 9(3), by contrast, provides that when one country seeks to extradite an individual "who has not been convicted," the requesting party must submit evidence that "would provide probable cause to suspect" that the fugitive "has committed the offense." Extradition Treaty, Colom.-U.S., supra , art. 9(3), S. Treaty Doc. No. 97-8, at 4.
Reference
- Full Case Name
- Andres Felipe ARIAS LEIVA, Petitioner-Appellant, v. WARDEN, Et Al., Respondents-Appellees.
- Cited By
- 4 cases
- Status
- Published