Zhi Liao v. Attorney General United States
Opinion
*717
Zhi Fei Liao petitions for review of a decision of the Board of Immigration Appeals ("BIA") dismissing his appeal of an Immigration Judge's ("IJ") order removing him from the United States based upon his alleged commission of a "crime of child abuse, child neglect, or child abandonment" under the Immigration and Nationality Act ("INA"),
I
Liao, a native and citizen of China, became a lawful permanent resident of the United States in 2005. On April 18, 2015, Liao had a physical altercation with his girlfriend, Yin Yu. A neighbor called the police, and Yu told the responding police officers that she was holding her infant son, J.Y., while Liao struck her, but that J.Y. was not "hit or hurt" during this encounter. She said, however, that at some point during the fight, J.Y. was placed on the bed and fell from the bed to the floor. Officers arrested Liao, charging him with three offenses, including endangering the welfare of a child in violation of
Following Liao's release from state custody, the Department of Homeland Security served Liao with a notice that he was subject to removal for, among other things, committing "a crime of domestic violence, a crime of stalking, or a crime of child abuse, child neglect, or child abandonment," which rendered him removable under
A
When the BIA issues its own opinion on the merits, we review the BIA's decision, not that of the IJ.
Mahn v. Att'y Gen.
,
B
Before reaching the merits of Liao's claim, we must determine whether he exhausted his administrative remedies as required by
The purpose of administrative exhaustion "is to ensure that the agency is given an opportunity to resolve issues raised before it prior to any judicial intervention."
Hoxha v. Holder
,
*719
Here, though Liao did not squarely present in his notice of appeal his claim that the Pennsylvania statute does not require sufficient risk to a child's welfare to be considered a crime of child abuse under § 1227(a)(2)(E)(i), he argued, through counsel, that violation of the "duty of care, protection or support" described under Pennsylvania's child endangerment statute did not require the type of conduct necessary to constitute a "crime of child abuse" under the INA. J.A. 59-61. Liao's argument on this issue was sufficient to notify the BIA not only that he was contesting whether the conviction for child endangerment rendered him removable (the degree of notification required by
Yan Lan Wu
,
The BIA's ruling also reflects that it was aware Liao disputed that his conviction rendered him removable and that he challenged whether his crime of conviction constituted the crime of "child abuse" under the INA. The BIA held that it was, which required it to determine whether the Pennsylvania crime met the INA's risk requirement. Thus, the BIA decided the issue we are asked to consider. The BIA's actions further support our conclusion that Liao exhausted his argument, and we have jurisdiction to analyze his assertion that his child endangerment conviction is not categorically a "crime of child abuse" under the INA.
III
A
Our analysis of Liao's claim requires us to determine the meaning of the phrase "crime of child abuse" under the INA. The INA does not provide a definition but the BIA has interpreted this phrase.
The BIA first defined the phrase "crime of child abuse" in
Matter of Velazquez-Herrera
,
any offense involving an intentional, knowing, reckless, or criminally negligent act or omission that constitutes maltreatment of a child or that impairs a child's physical or mental well-being, including sexual abuse or exploitation. At a minimum, this definition encompasses convictions for offenses involving the infliction on a child of physical harm, even if slight; mental or emotional harm, including acts injurious to morals; sexual abuse, including direct acts of sexual contact, but also including acts that induce (or omissions that permit) a child to engage in ... sexually explicit conduct ....
Building on this definition, in Matter of Soram , 25 I. & N. Dec. at 381-83 (B.I.A. 2010), the BIA interpreted the phrase "crime of child abuse" to also capture some "child endangerment" statutes, which criminalize not just harm to children, but acts that present different levels of risk of harm to children. Specifically, the BIA observed:
[s]tates use various terms to describe the level of threat required [for violation of their child endangerment statutes], including "realistic," "serious," "reasonably foreseeable," "substantial," or "genuine." Since the meaning of a term such as "substantial" could be subject to different interpretations by courts in each State, we will not attempt to analyze whether the myriad State formulations of endangerment-type child abuse offenses *720 come within the ambit of "child abuse" under [8 U.S.C. § 1227 (a)(2)(E)(i) ]. Rather, we find that a State-by-State analysis is appropriate to determine whether the risk of harm required by the endangerment-type language in any given State statute is sufficient to bring an offense within the definition of "child abuse" under the Act.
In
Matter of Mendoza Osorio
,
there are child endangerment statutes that do not require a sufficiently high risk of harm to a child to meet the definition of child abuse, neglect, or abandonment under the Act. For example, the child endangerment statute at section 273a(b) of the California Penal Code criminalizes conduct that places a child "in a situation where his or her person or health may be endangered." (Emphasis added.) In Fregozo v. Holder ,576 F.3d 1030 (9th Cir. 2009), the Ninth Circuit held that this statute did not categorically define a "crime of child abuse" within the meaning of the Act. The court observed that the statute does not "require that the circumstances create any particular likelihood of harm to a child" and punishes "conduct that creates only the bare potential for nonserious harm to a child."Id. at 1037-38 . In this regard, the court cited as an example of facts that did not meet our definition of child abuse the case of a parent "placing an unattended infant in the middle of a tall bed without a railing, even though the child was never injured."Id. Based on the facts as construed by the court, we would agree that they do not, alone, define a crime of child abuse or neglect.
Id.
at 711. Thus, to qualify as a crime of child abuse under the INA, a state child endangerment offense must require that the actor's conduct "create [a] particular likelihood of harm to the child" that rises above "conduct that creates only the bare potential for nonserious harm. ..."
Id.
(internal citation and quotation marks omitted). As a result, where a state child
*721
endangerment statute fails to require "any particular likelihood of harm to a child,"
id.
(quoting
Fregozo
,
Recognizing that the phrase "child abuse" has different meanings in different states, and that child abuse in this context is meant to address conduct that is criminal, it is appropriate to define the phrase "child abuse" under the INA to capture conduct that poses a particular likelihood of harm to the child. Using this definition, we next examine whether the Pennsylvania child endangerment statute constitutes a "crime of child abuse" under § 1227(a)(2)(E)(i). If so, then a conviction under the Pennsylvania statute provides a basis for removal.
B
To decide whether a state conviction qualifies as a basis for removal under the INA, we "employ a 'categorical approach' to determine whether the state offense is comparable to [the] offense listed in the INA."
Moncrieffe v. Holder
,
Under Pennsylvania law, "[a] parent, guardian or other person supervising the welfare of a child under 18 years of age, or a person that employs or supervises such a person, commits an offense if he knowingly endangers the welfare of the child by violating a duty of care, protection or support."
Comparing the Pennsylvania child endangerment statute to the offense of "child abuse" under the INA reveals a difference between each statute's risk requirements. Whereas the Pennsylvania statute merely requires conduct that "could threaten" a child's "welfare,"
Martir
,
Like the California statute our sister circuit examined in
Fregozo
, the Pennsylvania statute lacks an element requiring proof of a "sufficiently high risk of harm."
Mendoza Osorio
,
C
The Government claims that we must also engage in a "realistic probability" inquiry, examining convictions under the state statute to assess "whether the statute is actually applied to conduct that falls outside of the federal definition," Resp't's Br. at 31-32, before concluding the statute does not qualify as INA child abuse.
9
The Government argues that we are bound to undertake this analysis because
Gonzales v. Duenas-Alvarez
,
Contrary to the Government's assertion, it is unnecessary to conduct a realistic probability inquiry in every case. In
Singh v. Attorney General
,
In this case, we are not confronted with a situation in which there is no guidance as to how the statute applies. As explained above, Pennsylvania does not require any particular level of risk to violate its child endangerment statute, and thus, there is a
*724
difference between the risk element under the Pennsylvania child endangerment statute and the INA child abuse statute, making further inquiry into the law's application unnecessary. Put simply, the elements leave nothing to the "legal imagination,"
Duenas-Alvarez
,
IV
For the foregoing reasons, we will grant the petition and remand for the BIA to consider the alternative ground on which the IJ found Liao removable.
Initially, Liao received a notice to appear for removal proceedings that cited his simple assault conviction as the basis for his removal under
The IJ also held, in the alternative, that Liao's conviction for making terroristic threats in violation of
The IJ had jurisdiction over Liao's immigration proceedings under
The Government is mistaken as to how our liberal exhaustion policy works. It does not require liberally construing a party's pleadings as we must for pro se litigants.
Haines v. Kerner
,
Section 260.10(1) of the New York Penal Law provides, in pertinent part, that "[a] person is guilty of endangering the welfare of a child when ... [h]e or she knowingly acts in a manner likely to be injurious to the physical, mental or moral welfare of a child less than seventeen years old ...."
In
Martir
, the Pennsylvania Superior Court examined the question of whether a conviction for child endangerment merges for sentencing purposes with, as a lesser included offense, a conviction for reckless endangerment.
[a] conviction for reckless endangerment requires proof of conduct that places or may place another person in danger of death or serious bodily injury, while a conviction for endangering the welfare of children only requires proof of circumstances that could threaten the child's physical or psychological welfare. Thus, reckless endangerment requires proof of a fact that endangering the welfare of children does not. In other words, the element of conduct which places or may place a person in danger of death or serious bodily injury is not subsumed within proof that a child is placed in circumstance[s] that could threaten the child.
Martir
,
Citing to
Commonwealth v. Wallace
,
In 2017, the grading portion of the Pennsylvania child endangerment statute was amended to state that any violation that posed "a substantial risk of death or serious bodily injury" would make the offense a felony. See Pa. Act of June 29, 2017, P.L. 246, No. 12 (H.B. 217) (noting previous statutory language). Thus, a conviction under the felony provision of the endangerment statute would qualify as a crime of child abuse under the INA because it requires proof of a substantial risk of death or serious bodily injury.
In its August 15, 2018 Rule 28(j) letter, the Government admitted that the "realistic probability" test is not necessary where the text of the statutory provision plainly covers a broader swath of conduct than the generic federal offense, but argued that the test is required in all other instances, seemingly regardless of how courts articulate the statute's elements. When pressed on this position at oral argument, the Government admitted that one could look to the elements courts apply in comparing the elements of a state offense with the generic federal offense, but nevertheless maintained that a realistic probability test was necessary here. Oral Argument at 18:40, Liao v. Att'y Gen. , No. 17-1825, http://www2.ca3.uscourts.gov/oralargument/audio/17-1825Liaov.AttyGenUSA.mp3. For the reasons discussed in the text, we conclude that it is unnecessary to apply the realistic probability test where the elements of the offense, whether as set forth in a statute or case law, do not match the generic federal crime.
Only where the state statute offers insufficient guidance as to its application is further analysis needed to address whether the state applied its statute in a way that captured conduct outside of the federal statute's scope.
Moncrieffe
,
Our sister circuit courts have also held that the "realistic probability" inquiry is unnecessary where the elements of the offenses do not match.
See
Hylton v. Sessions
,
Reference
- Full Case Name
- ZHI FEI LIAO, Petitioner v. ATTORNEY GENERAL UNITED STATES OF AMERICA, Respondent
- Cited By
- 29 cases
- Status
- Published