United States v. Diaz-Martinez
United States v. Diaz-Martinez
Opinion of the Court
This matter is before the Court on the Defendant's MOTION TO DISMISS INDICTMENT (the "Motion") (ECF No. 18). For the reasons set forth below, the Motion will be denied.
BACKGROUND
I. Procedural Context
Trinidad Diaz-Martinez ("Diaz-Martinez") was charged in a one-count indictment with illegal reentry pursuant to
At the conclusion of the November 27 hearing, the Court ordered supplemental briefing on several issues that arose at the hearing. Hr'g Tr. at 125-129; ORDER (ECF No. 29).
II. Factual Background
Defendant Trinidad Diaz-Martinez was born in and is a citizen of El Salvador.
*492ECF No. 18 at 1. At some point in or around August 1996 (when he was 16-years-old), Diaz-Martinez entered the United States illegally. ECF No. 19 at 1. He encountered U.S. Border Patrol on or around August 17, 1996 and was assigned an alien file number ending in "669." Id.; Hr'g Tr. at 55 (ECF No. 30).
At the November 27 evidentiary hearing, Diaz-Martinez's uncle, Santos Lemus ("Lemus") testified that, following Diaz-Martinez's encounter with immigration officials in August 1996, he (Lemus) received a phone call informing him of his nephew's situation.
On August 27, 1996, Diaz-Martinez was personally served (care of Lemus) a "Show Cause Order," which explained in Spanish that immigration officials believed that Diaz-Martinez was an alien who was not lawfully admitted, and that he was to have a hearing before an immigration judge where he would receive information about any relief from deportation for which he might be eligible. ECF No. 19 at 1-2; Gov't Ex. 1. Further, this Show Cause Order informed Diaz-Martinez that if he were ordered removed, he would have certain administrative remedies.
On September 5, 1996, Diaz-Martinez received an "Order of Release on Recognizance" and was released to the custody of his uncle, Lemus.
On June 18, 1997, a "Notice to Appear" ("NTA") was allegedly mailed by immigration officials to Diaz-Martinez at the Heritage Park address. ECF No. 18 at 2; Hr'g *493Tr. at 62; Gov't Ex. 3. The NTA was sent by regular mail.
Diaz-Martinez argues that the record contains no evidence that he ever received the NTA, the NOH, or the Order of the Immigration Judge (the document informing him that he had been removed). ECF No. 18 at 2-3; Gov't Ex. 5. Diaz-Martinez did not testify to this himself, and his evidence on the lack of receipt of these documents comes only from Lemus' testimony.
Lemus testified that he and Diaz-Martinez lived at the Heritage Park address for all of 1997 and that he (Lemus) never received any mail at that address (addressed either to Diaz-Martinez or addressed to Lemus) informing Diaz-Martinez of his immigration court proceedings. Hr'g Tr. at 28-29, 33, 42, 44-45. Lemus further testified that he was the only person who had a key to his mailbox,
As prescribed on the NOH, an immigration hearing for Diaz-Martinez was held on August 13, 1997, but neither Diaz-Martinez nor Lemus appeared. ECF No. 18 at 3; Hr'g Tr. at 69. Diaz-Martinez was ordered removed in absentia to El Salvador. ECF No. 19 at 3; Hr'g Tr. at 69; Gov't Ex. 5. In the Order of Removal, the immigration judge wrote "Only relief is motion to reopen."
Then, on October 31, 1997, immigration officials mailed (by certified mail) to Diaz-Martinez at Heritage Park a Form I-166 informing him that: (1) he had been found deportable; (2) there was no relief available to him;
The December 4, 1997 date for Diaz-Martinez to turn himself in came and went. ECF No 19 at 4; Hr'g Tr. at 73. A warrant was issued for his arrest.
Diaz-Martinez did not encounter law enforcement again until July 12, 1999, when he was arrested by the Stafford County Sheriff's Department and turned over to immigration officials on his 1997 Removal Order. ECF No. 19 at 4; Hr'g Tr. at 74; Gov't Ex. 7. He was released that same day on an Order of Supervision, which required him to follow certain conditions, including checking in with immigration officials each month. ECF No 19 at 4; Hr'g Tr. at 74-77; Gov't Ex. 8. Diaz-Martinez followed this check-in requirement for a few months. Hr'g Tr. at 77-79; Gov't Ex. 9. During the October 1999 check-in, Diaz-Martinez was informed that he would be deported on November 1, 1999 (pursuant to the 1997 Removal Order). Hr'g Tr. at 78. Diaz-Martinez did not show up to be removed on November 1, 1999, and again, an active warrant for his removal was issued.
In April 2001, Diaz-Martinez applied for Temporary Protected Status ("TPS") and for Employment Authorization. ECF No. 18 at 4; ECF No. 19 at 5; Gov't Exs. 10-11. On his initial application, he provided a different address than had been provided in previous immigration proceedings and falsely stated (under penalty of perjury) that he had not previously been involved in immigration proceedings. ECF No. 19 at 5; Hr'g Tr. at 83-84; Gov't Exs. 10-11. Further, the applications indicated that Diaz-Martinez received assistance in filing his applications from Gerardo Aguilar. Hr'g Tr. at 81; Gov't Exs. 10-11. Both the TPS and Employment Authorization applications were granted. ECF No. 19 at 5. And, because Diaz-Martinez falsely stated that he had not previously been involved with immigration officials, he was issued a new alien number ending in "85." Id.; Hr'g Tr. at 84.
Subsequently, using his new alien number, Diaz-Martinez applied for renewal of either his TPS or his Employment Authorization (or both) on several occasions between 2003 and 2010. Hr'g Tr. at 92-105; Gov't Exs. 13-16, 22-23, 25-29. In 2005, Diaz-Martinez was informed that his TPS
*495was being withdrawn because he had several criminal convictions. Hr'g Tr. at 97-98; Gov't Exs. 17-19. His TPS was ultimately terminated in 2006 and his appeal of this decision was denied. Hr'g Tr. at 97-101; Gov't Exs. 17-21.
In December 2011, Diaz-Martinez was arrested on his outstanding 1997 Removal Order and was removed from the United States on January 17, 2012. ECF No. 19 at 7; Hr'g Tr. at 106; Gov't Ex. 30. Thereafter, Diaz-Martinez reentered the United States without authorization. ECF No. 18 at 4; ECF No. 19 at 8. In February 2018, he was arrested for several state offenses. ECF No. 19 at 8. He was convicted of these offenses and turned over to immigration officials.
DISCUSSION
I. Framework for Collateral Challenges to Prior Deportation Orders
Diaz-Martinez has been charged with illegal reentry under
Section 1326(d) sets out three elements that an alien must prove to challenge the underlying deportation order. In full, that subsection reads:
In a criminal proceeding under this section [8 U.S.C. § 1326 ], an alien may not challenge the validity of the deportation order described in subsection (a)(1) or subsection (b) unless the alien demonstrates that-
(1) the alien exhausted any administrative remedies that may have been available to seek relief against the order;
(2) the deportation proceedings at which the order was issued improperly deprived the alien of the opportunity for judicial review; and
(3) the entry of the order was fundamentally unfair.
It is evident from the statutory text that the defendant must satisfy (or be excused from) all three elements of Section 1326(d) to succeed in a collateral challenge. And, this Court has so held. United States v. Gonzalez-Ferretiz, No. 3:18-cr-117,
As the Court has previously noted, the burden of proof to establish that the elements of Section 1326(d) have been satisfied "rests with the defendant." United States v. Galcia, No. 1:15cr59,
In sum, allowing collateral challenges in Section 1326 prosecutions outside of Section 1326(d) flies in the face of the clear statutory text and Congress' intent.
*497Accordingly, if the Court determines that Diaz-Martinez has failed to satisfy any of the three elements of Section 1326(d), his collateral challenge must be rejected, and his motion denied. Conversely, however, if Diaz-Martinez satisfies (or is excused from) the three elements of Section 1326(d), the illegal reentry indictment must be dismissed. See El Shami,
II. Analysis
Diaz-Martinez's Motion rests on two arguments. First, he argues that he satisfies (or is excused from) the requirements of
The Court will address each of these arguments in turn. And, for the reasons set out below, will deny the Motion.
A. Section 1326(d)
Diaz-Martinez argues that he can succeed on a collateral attack under Section 1326(d) because he did not have notice of his 1997 removal proceedings, which, he argues: (1) excuses him from satisfying Section 1326(d)(1) and (d)(2) ; and (2) establishes a due process violation and prejudice, thereby satisfying Section 1326 (d)(3). Alternatively, he argues that he is excused from Section 1326(d)(1) and (d)(2) because he was affirmatively misadvised of the remedies available to him. See ECF No. 44 at 20 (summarizing Diaz-Martinez's position). The Government has consistently argued that Diaz-Martinez has not satisfied his burden to satisfy the three requirements of Section 1326(d). See generally ECF No. 47.
After a careful review of the evidence in this case, the Court finds that Diaz-Martinez has proffered sufficient evidence to show that he did not receive notice of his 1997 immigration hearing. This, under El Shami,
(1) Diaz Martinez Has Established That He Did Not Receive Notice Of His 1997 Removal Hearing
It is uncontroverted that an alien must be provided written notice of his or her removal proceedings. See, e.g.,
To resolve this Motion, it is necessary to first review presumptions applicable to mail delivery. Then, the Court will apply this presumption to the evidence in the case.
(a) Presumptions Applicable To Mail
Before dealing with service by mail in the immigration context, and in order for the Court to properly analyze the evidence before it, it is appropriate to discuss the general presumption that applies to mail delivery (sometimes referred to as the "mailbox rule"). As the Eleventh Circuit has succinctly put it:
The common law has long recognized a rebuttable presumption that an item properly mailed was received by the addressee. Nunley v. City of Los Angeles,52 F.3d 792 , 796 (9th Cir. 1995). The "presumption of receipt" arises upon proof that the item was properly addressed, had sufficient postage, and was deposited in the mail. The presumption is, of course, rebuttable.
Konst v. Fla. E. Coast Ry. Co.,
The Third Circuit's Lupyan case provides a good overview of the common law mailbox rule, including what it takes to raise the presumption and, in the context of regular mail, the types of evidence that are sufficient to overcome it. See
Once there is sufficient evidence that the mailing took place, "the presumption of receipt imposes the burden of production on the party against whom it is directed[.]"
Other courts, including the Fourth Circuit, have hewed to a similar framework to that outlined in Lupyan. For example, the Fourth Circuit held that testimony by a bank president who "saw to it the notices were put in an envelope and addressed to [the intended recipient] and put in the bank's mail, which in the ordinary course was daily posted" was "sufficient to create a presumption that the notices were duly mailed, and in the ordinary course reached the addressee, though of course it is for the jury to say, in view of her denial, whether this is true or not." Citizens' Bank & Tr. Co. of Middlesboro, Ky. v. Allen,
In sum, where a letter is sent by regular mail and there is evidence (typically through a sworn statement by one with personal knowledge of the mailing or mail procedures) that the letter was mailed, there is a presumption in federal court that the addressee received it. Once the presumption is raised, the recipient must put forward evidence of non-receipt. With regular mail, the recipient can put forward, for example, a sworn statement of non-receipt. See Lupyan,
In the immigration context, the mail presumption has come up in the context of "motions to reopen" in absentia removal orders.
Accordingly, in Nibagwire's case where the notice was sent by regular mail, the BIA abused its discretion by applying both the delivery presumption for certified mail and Grijalva's evidentiary standard for rebutting the presumption. Maknojiya v. Gonzales,432 F.3d 588 , 589 (5th Cir. 2005) (per curiam); Ghounem, 378 F.3d at 744-45 ; Salta, 314 F.3d at 1079. On remand the regular mail delivery presumption and the parallel evidentiary standard for rebutting the presumption must be used in evaluating the evidence on the receipt of notice issue.
Other courts have held that, with service by regular mail, a sworn affidavit by the alien can be sufficient to rebut the presumption of delivery and receipt and entitle the alien to an evidentiary hearing, at least where the alien "initiates a proceeding to obtain a benefit, appears at an earlier hearing, and has no motive to avoid the hearing." Salta v. I.N.S.,
The Court recognizes that these immigration cases are in a different posture than this case (i.e. they deal with motions to reopen while this case is a collateral challenge to the 1997 Removal Order). The Court sought the parties' views on whether Diaz-Martinez could demonstrate that he had overcome the presumption of mail delivery and prove (some 20 years later) that he did not receive notice of his immigration hearing. The parties briefing analyzed cases such as the ones above dealing with motions to reopen. Given the apparent paucity of authority *501on how, in a Section 1326 prosecution, a court is to assess a claim of non-receipt, the Court finds it prudent to follow the general mailbox rule and the mail presumption in motion to reopen cases, set out above.
(b) Application To The Evidence In This Case
Applying the foregoing framework to the evidence presented in this case, Diaz-Martinez has satisfied his burden to demonstrate that he never received notice of his 1997 immigration hearing. The Court notes that this is a close case, and is based only on the evidence that the Court has before it in this case.
To begin, it is important that the Government did not introduce testimony of the sort that usually animates the presumption. However, the Government introduced both the NTA and the NOH (Gov't Exs. 3 and 4) that were properly addressed to the Heritage Park address. There is no dispute that, at all relevant times during 1997 (when these notices were allegedly mailed), Diaz-Martinez lived with Lemus at the Heritage Park address in Fredericksburg. See, e.g., Hr'g Tr. 28-29; Gov't Ex. 6 (certified mail receipt from October 1997 signed for by Diaz-Martinez at the Heritage Park address). Both the NTA and the NOH have "certificates of service" indicating that they were served by regular mail. See Gov't Ex. 3 (signed by Immigration Officer William Jones); Gov't Ex. 4 (indicating service by mail but the signature is illegible).
And, the Government's witness, Deportation Officer Richard Tine, testified about his general knowledge of how notices (like the NTA and NOH) are served. Hr'g Tr. at 62-68. He first testified to the address that an NTA would be sent to, id. at 63-64, and then (after a question by the Court about whether the certificate of service indicated that the NOH was served "in the usual course of things"), he testified that the certificate of service on the Notice of Hearing "indicated...it was mailed." Id. at 67-68. Tine did not testify about the process by which immigration notices were put into envelopes and actually sent in the mail. Nor did he have personal knowledge of the procedures in place in 1997 because he testified that he has been an deportation officer for "[e]ight and a half years." Id. at 49. On cross-examination, Tine also testified that, in other alien files from around the time of Diaz-Martinez's deportation, he had "seen...copies of the mail that was sent, and it remains in that alien file." Id. at 114. No such evidence was contained in Diaz-Martinez's file. The Government did not present evidence from immigration officials who were working at the time of Diaz-Martinez's removal proceedings.
*502While the evidence that the Government mailed the NOA or NOH to Diaz-Martinez is weak, the Court concludes that it is sufficient to raise the presumption of proper delivery and thus receipt by Diaz-Martinez. The following evidence suffices to raise the presumption here: (1) that the correct address for Diaz-Martinez was listed on the NTA and NOH; (2) that the NTA and NOH contained certificates of service indicating service by "regular mail"; and (3) that Officer Tine provided general testimony about the process of serving notices. That is sufficient where, as here, the issue rears its head some twenty-years after the fact. Accordingly, Diaz-Martinez must put forward evidence that he did not receive it.
So the next issue is whether Diaz-Martinez has rebutted the presumption that a regular mail letter is presumed to be delivered and received. Diaz-Martinez's evidence on this point comes from Lemus. Although the best evidence that Diaz-Martinez did not receive notice of his removal hearings is testimony or an affidavit from Diaz-Martinez that he did not receive notice, the evidence in this case is nonetheless sufficient to overcome the presumption of delivery and receipt.
In 1997, Diaz-Martinez was a minor and Lemus was responsible for taking him to his immigration proceedings. Hr'g Tr. at 8, 27-28, 33. Lemus testified that he never received any mail for Diaz-Martinez, either addressed to Diaz-Martinez or addressed to Lemus, informing Diaz-Martinez of his immigration court proceedings. Id. at 28-29, 33, 42, 44-45. Lemus explained how the mail was delivered to Heritage Park: all the mail for the entire apartment complex was delivered to a bank of about 100 mailboxes located at the building entrance. Id. at 29-30. The mail carrier would open the front panel of the mail box and put mail into the box for individual apartments, like T2, where Diaz-Martinez and Lemus lived. Id. at 30. Lemus testified to issues he had receiving mail on several occasions due to mistakes by the mail carrier in putting mail in the wrong apartment's mailbox. Id. at 30-33. Specifically, Lemus failed to receive Christmas cards on about seven occasions, car insurance paperwork on about five occasions, and Lemus' own legal permanent residence card. Id.
Lemus also testified that he (Lemus) was the only person who had a key to his mailbox, id. at 30-31, and he never gave the mailbox key to anyone else (including Diaz-Martinez) to check the mail for him. Id. at 31, 40. Indeed, Diaz-Martinez and Lemus were the only ones living at the Heritage Park address during the period in question. Id. at 10. In sum, Lemus' testimony establishes that, if he (Lemus) did not receive the notices, no one else would have because no one else had the ability to check the mail for the apartment in which he and Diaz-Martinez lived.
There is, of course, evidence on the other side. Lemus did receive paperwork in the mail at the Heritage Park address from immigration officials in 1996 when he took responsibility for Diaz-Martinez. Hr'g Tr. at 9, 13, 27-28, 37. And, Lemus had trouble recalling some details about his time at Heritage Park and when he last *503saw his nephew. Id. 9-10, 29, 31-32, 35, 43-44. Lemus also did not reach out to immigration officials to inquire about the status of his nephew's proceedings. However, on the evidence before the Court, the Court concludes that Diaz-Martinez has put forward enough evidence to rebut the presumption of delivery and receipt of notices of his immigration hearing.
Weighing all the evidence in the record, including the testimony given by Lemus, the Court concludes that Diaz-Martinez did not receive notice of his 1997 immigration hearing. Lemus presented as a credible, law-abiding witness. He entered the United States on a work permit, and testified that he has always maintained legal status (he became a legal permanent resident in 2002). Hr'g Tr. at 4-6. He has been a church pastor, has worked other jobs, and has no criminal convictions. Id. Because Diaz-Martinez was a minor, Lemus was his custodial officer and testified that he would have brought Diaz-Martinez to immigration proceedings had he received notice of when to appear. He testified unequivocally that he did not receive any such notice. And, he was the only one who would have because he had the mailbox key.
It is of some concern that Diaz-Martinez did not offer testimony denying receipt of the NTA and the NOH. In many, if not most, cases, the absence of testimony from the defendant on this point would be fatal to a motion of the sort made by Diaz-Martinez. As discussed previously, several decisions teach that sworn evidence from the defendant can overcome the presumption. However, none of those decisions held that testimony from the defendant was necessary to overcome the presumption. On this record, there is independent evidence that supports Diaz-Martinez's position. And, taking the testimony of Lemus in perspective of the weak evidence presented by the Government to prove that the NTA and NOH were actually mailed, the Court concludes that Diaz-Martinez did not have notice of his removal hearing in 1997. It is now necessary to determine the effect of that finding.
(2) Diaz Martinez Can Satisfy Section 1326(d) (1), (d) (2) And Show A Due Process Violation
Under El Shami, Diaz-Martinez argues that failure to receive the NTA and the NOH (notice of the removal hearing) excuses him from exhausting administrative remedies and demonstrating a deprivation of judicial review, thereby satisfying Section 1326(d) (1) and (d) (2). See
As the Government points out, the factual backgrounds of El Shami and this case are different. See ECF No. 47 at 10-11. El Shami testified that he never received notice and the Government conceded that there was no evidence in the record that immigration officials sent him notice as required. See El Shami,
While there is not uncontradicted evidence in the record that immigration officials failed to send Diaz-Martinez notice of his hearing, Diaz-Martinez has presented enough evidence for the Court to conclude *504that El Shami applies to this case. It is true that the addresses on the NTA and NOH were correct and there was a certificate of service indicating service by regular mail. See United States v. Ramos-Delcid, No. 3:18-cr-20,
Accordingly, on the record in this case, the rule in El Shami applies. Because Diaz-Martinez did not have notice of his removal hearing, he did not appear and was thus not properly advised of his rights to administrative and judicial review. See El Shami,
The Court also concludes that, by showing that he did not have notice of his removal hearing, Diaz-Martinez has established a due process violation. As El Shami held: "due process requires an alien who faces [removal] be provided (1) notice of the charges against him, (2) a hearing before an executive or administrative tribunal, and (3) a fair opportunity to be heard."
Accordingly, Diaz-Martinez has satisfied his burden to show that he is excused from Section 1326 (d) (1), (d) (2), and that the 1997 removal proceeding deprived him of due process, thereby satisfying the first requirement of Section 1326 (d) (3).
(3) Diaz Martinez Has Failed To Meet His Burden To Demonstrate Prejudice
Of course, to satisfy Section 1326(d) (3), Diaz-Martinez must show that the due process violation caused him prejudice. To do that, he must establish that, "but for the errors complained of, there was a reasonable probability that he would not have been deported." El Shami,
Diaz-Martinez argues in his briefs that, if he had been informed of the removal hearing, he would have appeared at his immigration hearing and applied for voluntary *505departure. See ECF No. 18 at 11-12. And, had he applied for voluntary departure, he argues, there is a "reasonable probability" that he would have received it.
Voluntary departure is governed by 8 U.S.C. § 1229c. Officer Tine testified at the evidentiary hearing that there are two types of voluntary departure: one that occurs before the conclusion of the immigration hearing and one that occurs after the conclusion of the hearing. Hr'g Tr. at 116. For pre-conclusion voluntary departure, the alien may "voluntarily...depart the United States at the alien's own expense under this subsection,
In considering whether to grant voluntary departure, the immigration judge is to consider many factors, including the nature and underlying circumstances of the deportation at issue; other immigration violations by the alien; the alien's criminal record; character of the alien; and the alien's length of time and family ties in the United States. See In re Arguelles-Campos,
In El Shami, the Fourth Circuit held that there was a "reasonable probability" that El Shami would have been granted relief from deportation
The record in this case does not permit the Court to conclude that Diaz-Martinez would have applied for and been granted pre-conclusion voluntary departure. First, Diaz-Martinez's assertion that he would have applied for voluntary departure comes through his brief, not through any evidence in the record. Diaz-Martinez did not testify or put forward an affidavit that he would have applied for voluntary departure (nor did Lemus mention this in his testimony). In a Section 1326 prosecution, it is the alien's burden to demonstrate that he satisfies all three requirements of Section 1326(d). The Court cannot rely on the argument of counsel rather than evidence in the record.
Second, there is evidence in the record that Diaz-Martinez did not have a felony on his record, Hr'g Tr. at 118, that his uncle lived in the United States (Lemus), and that he had not had prior encounters with immigration officials. However, the record is also clear that Diaz-Martinez had been in the United States for less than one year and the Court has no evidence of other family Diaz-Martinez had in the United States (other than Lemus). See United States v. Itehua, No. 3:17-cr-119,
Further, Diaz-Martinez was a minor in 1997. While the parties agree that this fact would not have prevented Diaz-Martinez from receiving voluntary departure, the Court has no evidence that Diaz-Martinez would have been willing and able to voluntarily depart. Though the BIA has said that the alien need not establish that he has "the financial means to depart the United States" to qualify for pre-conclusion voluntary departure, In re Arguelles-Campos,
*507In sum, to establish a "reasonable probability" that he would have applied for and received voluntary departure, Diaz-Martinez must put forward evidence, not argument of counsel, that allows the Court to assess his claim. The evidence the Court does have does not establish a "reasonable probability" that he would have been granted voluntary departure. In the absence of such evidence (as here), his prejudice claim must fail.
(4) Section 1326(d) Conclusion
For the reasons set forth above, Diaz-Martinez has not demonstrated that the due process violation actually prejudiced him. Thus, he fails to satisfy Section 1326 (d) (3). Accordingly, the Motion must be denied.
B. Jurisdiction Of The Immigration Court
Diaz-Martinez's second argument is that the immigration court lacked jurisdiction to hear his case in 1997; and therefore, that the removal order was invalid. See, e.g., ECF No. 18 at 12-19; ECF No. 20 at 1-8. The argument proceeds as follows: (1) the immigration court is vested with jurisdiction by the filing of a charging document; (2) one such charging document is an NTA; (3) in Pereira v. Sessions, --- U.S. ----,
While a few District Courts have agreed with Diaz-Martinez's argument about the impact of Pereira on the jurisdiction of the immigration court,
The Court agrees with the well-reasoned analysis in Gomez-Salinas that regulations, not the statutory provisions at issue in Pereira, govern the vesting of jurisdiction in the immigration courts.
Second, because the statute is silent on jurisdiction, the Attorney General has promulgated a regulation providing that "[j]urisdiction vests, and proceedings before an Immigration Judge commence, when a charging document is filed with the Immigration Court by the Service."
Chief Judge Davis succinctly described the requirements of the regulatory NTA and the differences between the statute and the regulations:
Both the statute and the regulation list requirements for the contents of a Notice to Appear. The regulation requires a Notice to Appear to include specified information, such as "[t]he nature of the proceedings," "[t]he acts or conduct alleged to be in violation of law," and "[n]otice that the alien may be represented, at no cost to the government, by counsel or other representative."8 C.F.R. § 1003.15 (b). The regulation does not mandate that the time and date of proceedings appear in the initial notice; the time and date only need to be included "where practicable."8 C.F.R. § 1003.18 (b). If "that information is not contained in the Notice to Appear," the regulation permits "scheduling the initial removal hearing and providing notice to the government and the alien of the time, place, and date of hearing" subsequently.Id. The statute contains largely the same requirements as the regulation, except it demands inclusion of "[t]he time and place at which the proceedings will be held."8 U.S.C. § 1229 (a) (1) (G) (i).
Gomez-Salinas,
Pereira v. Sessions, --- U.S. ----,
*509That question was whether a "notice to appear" that "fails to specify either the time or place of the removal proceedings...trigger[s] the stop-time rule[.]"
This "narrow" holding does not address the jurisdiction of the immigration court, which, as discussed above, is established by regulations. See
The Fourth Circuit's unpublished opinions confirm a narrow holding of Pereira. See Leonard,
The Court recognizes that many of the cases cited above approve of the so-called "two-step notice process" by which service of a subsequent NOH can cure any alleged defects in the NTA. See, e.g., Gomez-Salinas,
*510Matter of Bermudez-Cota,
Even if Diaz-Martinez did not receive the NOH (or if the NTA is defective under Pereira ), Diaz-Martinez's argument fails because the immigration regulations do not impose a subject matter jurisdiction limitation such that the removal order is ultra vires. As Judge Brinkema's sound analysis in Rivera Lopez clearly explains, " section 1003.14 does not impose a subject-matter jurisdictional limitation" on immigration courts. 355 F.Supp.3d at 439 ; Flores,
In that sense, section 1003.14(a) is more akin to a federal court's local rules, which (like the regulations at issue here) are the product of congressionally delegated gap-filling authority, see Fed. R. Civ. P. 83(a) (1), but which in no way affect the federal court's subject-matter jurisdiction. Accordingly, the best reading of section 1003.14 (a) is that although it imposes a procedural requirement on immigration authorities' initiation of removal proceedings, that requirement is not "jurisdictional" in the formal sense, and a defect in a notice to appear does not necessarily render a resulting deportation order void ab initio.
Rivera Lopez, 355 F.Supp.3d at 439. Several other courts in this Circuit have hewed to this reasoning. See Flores,
CONCLUSION
For the foregoing reasons, Defendant's MOTION TO DISMISS INDICTMENT (ECF No. 18) is denied.
It is so ORDERED.
Due to several (party-requested) extensions to the supplemental briefing schedule, the first round of supplemental briefing was fully submitted to the Court on February 6, 2019.
Lemus testified that Diaz-Martinez is his nephew by marriage; Lemus' wife is Diaz-Martinez's aunt. Hr'g Tr. at 7.
Although Lemus' testimony on this point is not entirely clear, it appears that Lemus lived at the Heritage Park address from about 1994 to 2006. See Hr'g Tr. at 9-10.
The Show Cause Order was cancelled on June 18, 1997 (the same day that the Notice to Appear, discussed infra, was dated). Def. Ex. B; Hr'g Tr. 107-09. The parties agree that, due to a change in immigration law, this Show Cause Order does not have any bearing on the Court's analysis regarding the jurisdiction of the immigration court. ECF No. 34 at 1-2; ECF No. 37 at 12. However, the Court does not view the fact that the Show Cause Order was cancelled as precluding it from considering that the Show Cause Order put Diaz-Martinez on notice of certain information.
Among other conditions, this Order instructed that Diaz-Martinez was not to change his address without alerting immigration officials. ECF No. 19 at 2; Gov't Ex. 2.
The mailboxes for the entire apartment complex (about 100 in all) were located at the entrance of the complex; the mail carrier would open all of the boxes before distributing mail to the mailbox of the individual apartments. Hr'g Tr. at 29-30.
Lemus was considered Diaz-Martinez's custodial officer. Hr'g Tr. at 121.
Specifically, the I-166 stated: "As you know, following a hearing in your case you were found deportable and the hearing officer has entered an order of deportation. A review of your file indicates there is no administrative relief which may be extended to you...." Gov't Ex. 6 (emphasis added). The underscored information was not correct. See supra note 19.
When specifically asked if he was aware that Diaz-Martinez had received certified mail at the Heritage Park address informing him that he had been ordered deported, Lemus testified that he was unaware that such mail had been received. Hr'g Tr. at 46.
As the Court discussed in Gonzalez-Ferretiz, language in Moreno-Tapia and a recent opinion by Judge Brinkema suggest that collateral challenges outside of Section 1326(d) might be possible. See Moreno-Tapia,
The Court continues to be of the view that, at this juncture, given the clear language of the statute and the fact that Moreno-Tapia, Lopez-Collazo, and El Shami all perform the collateral attack analysis solely within the Section 1326(d) framework, the cogent, well-reasoned approach taken in Romero-Caceres correctly sets out the proper framework for resolving challenges such as the one made here by Diaz-Martinez.
The "Section-by-Section" analysis of the legislation that added Section 1326(d) states that the new subsection "allow[s] a court in a criminal proceeding against a deported alien who re-enters the U.S. to re-examine the underlying deportation order only if the alien" satisfies the three requirements of Section 1326(d). 140 Cong. Rec. S.5558-01 (daily ed. May 11, 1994),
The Show Cause Order was personally served on Diaz-Martinez, but as discussed above, the Show Cause Order did not inform Diaz-Martinez of the date and time of his immigration hearing and was cancelled on the same day that the NTA was issued to Diaz-Martinez.
The parties provided supplemental briefing on the import of the Government's failure to make such a showing, but there appears to be little authority on that topic or what it takes for personal service to be "not practicable." See ECF No. 44 at 1-2; ECF No. 47 at 3-5. The Government asserts that "most cases appear to treat service by mail as an acceptable means under the statute...." ECF No. 47 at 4.
When an alien is removed in absentia pursuant to 8 U.S.C. § 1229a(b) (5) (like Diaz-Martinez), he may seek rescission of the removal order by, inter alia, filing a motion to reopen "at any time if the alien demonstrates that the alien did not receive notice in accordance with paragraph (1) or (2) of section 1229(a) of this title." 8 U.S.C. § 1229a(b)(5) (C) (ii) (emphasis added). Thus, the focus in a motion to reopen is on whether the alien received notice. See Santana Gonzalez,
Before a change in the law in 1996, removal notices (like the ones at issue in this case) had to be served in person or by certified mail. See El Shami,
The Court is aware of the so-called "presumption of regularity" and notes that it could have some effect on the analysis of collateral challenge cases like this one. See Parke v. Raley,
The parties have not raised this presumption or made any argument that it applies here. In the absence of the parties' views and arguments on this presumption, the Court will not apply it in this case.
That finding is not changed by the fact that Diaz-Martinez signed the certified mail receipt for documents informing him that he had already been ordered removed in October 1997. Gov't Ex. 6. That is because such mail necessarily would have been signed for by Diaz-Martinez at the apartment, and would not have passed through Lemus' mailbox. ECF No. 48 at 2 n.1.
Lemus testified that, on numerous occasions, he had not received mail that he later learned had been sent to him. That evidence is probative on the issue of whether properly addressed regular mail, on occasion, is not delivered to the addressee.
The Court also notes that Diaz-Martinez was wrongly informed in the October 1997 letter (Gov't Ex. 6) that "there is no administrative relief which may be extended to you." As both parties acknowledge (ECF No. 44 at 16, ECF No. 47 at 15), that statement was incorrect because Diaz-Martinez could have filed a motion to reopen "at any time" if he could demonstrate that he did not receive notice of his hearing. 8 U.S.C. § 1229a (b) (5) (C) (ii) (1994 & Supp. III 1998). The Court need not decide whether this erroneous information would have separately excused Diaz-Martinez or established a due process violation. See United States v. Arias-Ordonez,
Voluntary departure is not a prior removal for purposes of
The BIA has held that the alien's ability to pay is not a proper consideration for determining eligibility for pre-conclusion voluntary departure. In re Arguelles-Campos,
Post-conclusion voluntary departure requires, inter alia, that the alien "has been physically present in the United States for a period of at least one year immediately preceding the date the notice to appear was served under section 1229 (a) of this title." § 1229c (b) (1) (A). Because the evidence in this case establishes that Diaz-Martinez entered the United States "on or about" August 17, 1996, see, e.g. Gov't Ex. 1, and the NTA is dated June 18, 1997, see, e.g., Gov't Ex. 3, Diaz-Martinez was not present for "a period of at least one year," and thus would not qualify for this form of relief.
El Shami did not involve voluntary departure, but the form of discretionary relief required the immigration judge to weigh virtually the same factors as in a voluntary departure request.
The Court also notes that evidence in the record suggests that Diaz-Martinez may not even have showed up at his removal proceedings had he known about them. For example, after he was arrested in 1999 and had the 1997 Removal Order reinstated, Diaz-Martinez was informed that he would be deported on November 1, 1999 (pursuant to the 1997 Removal Order). Hr'g Tr. at 78. Diaz-Martinez did not show up to be removed on November 1, 1999. Id. 78-79. While this evidence is not necessary for the Court's resolution of the prejudice inquiry, it illustrates the need for evidence to support the argument that Diaz-Martinez would have appeared and sought pre-conclusion voluntary departure.
See, e.g., United States v. Tzul, 345 F. Supp.3d.785 (S.D. Tex. 2018) ; United States v. Ortiz,
See, e.g., United States v. Flores, No. 3:18-cr-152-JAG,
In Shogunle v. Holder, the Fourth Circuit indicated that the NTA had to be filed with the immigration court before jurisdiction would vest.
8 U.S.C. § 1229b(b) (1) permits the Attorney General to "cancel removal of" certain aliens if, among other requirements, the alien "has been physically present in the United States for a continuous period of not less than 10 years immediately preceding the date of such application." § 1229b(b) (1) (A).
The "stop-time rule" states that "any period of continuous residence or continuous physical presence in the United States shall be deemed to end...when the alien is served a notice to appear under section 1229(a) of this title...." 8 § 1229b(d) (1) (emphasis added). In other words, the statutory provision establishing the "stop-time rule" expressly incorporates the statutory definition of "notice to appear" found in
Reference
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- United States v. Trinidad DIAZ-MARTINEZ
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