Ayala v. United States
Ayala v. United States
Opinion of the Court
Plaintiff, a United States citizen born in El Salvador, brings this action seeking to recover damages for the Department of Homeland Security's ("DHS") decision to arrest, detain, and remove plaintiff based on an erroneous determination in 2004 that plaintiff was not entitled to derivative citizenship. At issue are defendant's motions (i) to dismiss for lack of subject matter jurisdiction and (ii) to dismiss for failure to state a claim. Because the DHS officials' conduct that plaintiff challenges in this case falls within the discretionary function exception of the Federal Tort Claims Act ("FTCA"),
I.
Plaintiff was born in El Salvador on January 20, 1978. According to the Complaint, plaintiff first entered the United States at age two or three and was granted lawful permanent residence in the United States on or about September 1, 1987. Plaintiff's parents divorced in 1983, but the divorce decree did not address or decide which parent would have legal or physical custody of plaintiff. On June 8, 1995, plaintiff's father became a naturalized citizen of the United States. At the time of his father's naturalization, plaintiff was seventeen years old and was residing with his father in Washington, D.C. Plaintiff's father had actual, uncontested custody of plaintiff at the time of plaintiff's father's naturalization. Accordingly, by operation of then-applicable Immigration and Nationality *638Act § 321(a),
In February 2004, plaintiff left the United States to visit El Salvador. When plaintiff returned to the United States on February 28, 2004 via John F. Kennedy International Airport in New York City, plaintiff was questioned about his immigration status by a United States Customs and Border Protection ("CBP") officer. Plaintiff told the CBP officer that he was a lawful permanent resident, that he lived with his father in Washington, DC, and that his father was a U.S. citizen. Plaintiff also asked the CBP officer to investigate whether plaintiff was a United States citizen. CBP allowed plaintiff to enter the United States but directed him to report to CBP at Dulles International Airport because it appeared that plaintiff had been convicted of four criminal offenses, including two controlled substance offenses. Plaintiff subsequently reported to CBP at Dulles International Airport.
On April 26, 2004, CBP officers began investigating whether plaintiff possessed derivative United States citizenship from his father's naturalization as a United States citizen. In the course of the investigation, CBP had in its possession information reflecting that at the time of his father's naturalization, (i) plaintiff was a minor, (ii) plaintiff resided with his father, and (iii) plaintiff's parents had agreed that plaintiff would reside with his father. Nonetheless, CBP and DHS officials determined that plaintiff was not a derivative citizen of the United States.
During a check-in with CBP on or about August 12, 2004, CBP told plaintiff he was not a United States citizen and detained him in an immigration detention center in Virginia. Immigration officials searched plaintiff multiple times while he was detained. Thereafter, United States Immigration and Customs Enforcement ("ICE") served plaintiff with a Notice to Appear ("NTA"), which commenced removal proceedings against plaintiff in Immigration Court in Arlington, Virginia. The NTA informed plaintiff that ICE alleged (i) that plaintiff was not a citizen of the United States, (ii) that plaintiff was convicted of four criminal offenses, including two controlled substance offenses, (iii) and that plaintiff was subject to removal under
During his removal proceedings, plaintiff, by counsel, conceded that he was not a United States citizen, despite the fact that he was provided a full opportunity to argue *639that he had previously obtained derivative United States citizenship. Based on plaintiff's admission, the Immigration Court held that plaintiff was subject to removal pursuant to the charges in the NTA. Plaintiff was ordered removed on September 29, 2004, and plaintiff did not notice an appeal of that order. Immigration officials executed the removal order and removed Plaintiff to El Salvador on or about December 6, 2004.
Plaintiff subsequently returned to the United States in or around 2005. Then, on or about November 20, 2015, ICE officers took plaintiff into custody and detained him at a detention center in Virginia after plaintiff's prior removal order was reinstated pursuant to
Based on these facts, plaintiff claims that the United States is liable pursuant to the FTCA for the following torts under Virginia law: assault, battery, false arrest, intentional infliction of emotional distress, negligence, and negligent infliction of emotional distress. In essence, these claims allege that DHS officials erroneously determined in 2004 that plaintiff had not become a derivative citizen when his father was naturalized and that, as a result, DHS officials unlawfully arrested, detained, and removed plaintiff in 2004 and again unlawfully arrested and detained plaintiff in 2015 and 2016.
II.
In its motion to dismiss for lack of subject matter jurisdiction, defendant argues that subject matter jurisdiction over plaintiff's claims is lacking pursuant to the discretionary function exception to the FTCA's waiver of sovereign immunity.
At issue here is the discretionary function exception, which provides that the *640FTCA's waiver of sovereign immunity does not extend to any claim against the United States "based upon the exercise or performance or the failure to exercise or perform a discretionary function or duty on the part of a federal agency or an employee of the Government, whether or not the discretion involved be abused."
Before proceeding to apply these two requirements, it is important to identify the government conduct that is challenged by plaintiff's tort claims. A review of the Complaint reflects that plaintiff alleges that DHS officials negligently and erroneously determined in 2004 that plaintiff was ineligible for derivative citizenship and that this determination led to plaintiff's arrest, detention, and removal to El Salvador in 2004 and his arrest and detention during 2015 and 2016. See Compl. ¶ 43 ("DHS arrested, detained, and deported [plaintiff] based on a misunderstanding of citizenship law in 2004."); id. ¶ 49 ("DHS acted recklessly when the agency incorrectly determined that [plaintiff] was not a U.S. citizen, which subsequently led to his arrest, detention, and deportation to El Salvador."); id. ¶ 52 ("DHS breached its duty [to allow U.S. citizens like plaintiff to enter the United States freely] which was the cause in fact and proximate cause of [plaintiff's] arrests, detention, and deportation."); id. ¶ 54 ("DHS acted negligently when the agency incorrectly determined that [plaintiff] was not a U.S. citizen, which subsequently led to his arrest, detention, and deportation to El Salvador."). Thus, plaintiff's various tort claims, distilled to their essence, challenge DHS officials' determination in 2004 that plaintiff was ineligible for derivative United States citizenship and DHS's decision to detain and deport plaintiff based on that determination.
There is no doubt that the first requirement for application of the FTCA's discretionary exception function-i.e. that the conduct at issue involves an element of judgment or choice-is met here. The government conduct that plaintiff challenges here clearly involved the exercise of judgment and discretion by DHS officials. It is well-established that decisions by law enforcement regarding whom to investigate, how to investigate, and whether to prosecute constitute discretionary activity by government officials. See Medina ,
*641Hodgson v. United States , No. SA:13-CV-702,
In response, plaintiff argues that even if DHS officials' investigative and prosecutorial activity constituted discretionary activity, DHS officials nonetheless lacked discretion to arrest and detain plaintiff pending removal because he was a United States citizen.
Second, even if DHS officials' arrest, detention and removal of plaintiff are analyzed separately from DHS officials' investigative activity, these actions nonetheless constitute discretionary conduct. As courts have recognized, the decision to arrest and detain a suspect necessarily involves the exercise of judgment by immigration officials to determine whether, based on the available information, the suspect is a detainable alien. See Nguyen v. United States ,
The necessity that immigration officials exercise judgment is no less evident in the context of removing an alien. It is well-settled that "[i]n deportation proceedings, evidence of foreign birth gives rise to a rebuttable presumption of alienage, and the burden shifts to the [petitioner] to prove citizenship." Miranda v. Sessions ,
Turning to the second requirement of the discretionary function exception-i.e. that the official's decision was based on considerations of public policy-the Fourth Circuit has held that "if a government employee has discretion under the first [discretionary function exception] prong," as is the case here, "it 'must be presumed' that his acts 'are grounded in policy when exercising that discretion.' " Estate of Bernaldes v. United States ,
In sum, the decisions made by DHS officials that plaintiff challenges here meet both requirements for the application of the discretionary function exception to the FTCA's waiver of sovereign immunity. Accordingly, the United States has not *643waived sovereign immunity with respect to plaintiff's tort claims, and plaintiff's FTCA action must therefore be dismissed for lack of subject matter jurisdiction.
Precisely this conclusion was reached by the Ninth Circuit in Arteaga-Ruiz v. United States ,
The district court first concluded that the Arteaga-Ruiz plaintiff's claims, which mirror the claims brought by plaintiff in the instant case, "all stem from ICE's allegedly negligent investigative activity concerning his immigration status, which led to his week-long detention and removal." Id. at 1202-03. According to the district court, this challenged government conduct met the first requirement of the discretionary function exception because "the ICE agents' conduct during their investigation of [the plaintiff]'s immigration status, the conclusions drawn from their investigation, and the decision to remove him, are generally considered discretionary conduct." Id. at 1203. The district court also held that this conduct met the second requirement of the discretionary function analysis because "[t]he ICE agents' discretionary conduct in investigating [the plaintiff]'s immigration status, analyzing the information received, and in deciding whether to issue an NTA charging [the plaintiff] were susceptible to policy analysis." Id. at 1204. Accordingly, the district court held that the Arteaga-Ruiz plaintiffs "negligence, false imprisonment, and intentional infliction of emotional distress claims are barred by the discretionary function exception to the FTCA's waiver of sovereign immunity." Id.
On appeal, the Ninth Circuit affirmed the district court's dismissal of the Arteaga-Ruiz plaintiff's tort claims. Specifically, the Ninth Circuit held (i) that the plaintiff's claims "turn on whether federal immigration agents negligently or wrongfully failed to discover that [the plaintiff] was a U.S. citizen before he was removed in 2007," and (ii) that these "claims are barred by the discretionary function exception because the manner in which the agents investigated [the plaintiff]'s eligibility for removal meets both" requirements of the discretionary function exception. Arteaga-Ruiz ,
*644In light of the close factual similarity between Arteaga-Ruiz and the instant case, the Ninth Circuit's reasoning in Arteaga-Ruiz is particularly instructive and thus provides further support for the conclusion reached here, namely that the discretionary function exception to the FTCA applies to DHS officials' determination in 2004 that plaintiff was ineligible for derivative United States citizenship and DHS's decision to detain and deport plaintiff based on that determination.
An appropriate order will issue.
The Fourth Circuit has explained that when the defendant challenges the factual basis for subject matter jurisdiction, "the district court is to regard the pleadings' allegations as mere evidence on the issue, and may consider evidence outside the pleadings without converting the proceeding to one for summary judgment." Richmond, Fredericksburg & Potomac R. Co. v. United States ,
INA § 321(a) was enacted October 5, 1978 by Pub. L. 95-417, § 5,
Then-applicable INA § 321(a) provided that: "[a] child born outside of the United States of alien parents ... becomes a citizen of the United States upon ... [t]he naturalization of the parent having legal custody of the child when there has been a legal separation of the parents." When the parents' legal separation is not accompanied by a grant of custody over the child, the parent having "actual uncontested custody" is to be regarded as having "legal custody" for purposes of determining the child's eligibility for derivative citizenship. See Matter of M- ,
In the motions to dismiss, defendant also argue that dismissal of plaintiff's claims is warranted because (i) the claims are covered by the "due care" exception to the FTCA's waiver of sovereign immunity, see
See, e.g., Arteaga-Ruiz v. United States ,
See Berkovitz ,
For additional factually apposite cases holding that the discretionary function exception applied to immigration official's investigation of person's citizenship and subsequent detention and removal of that person, see Nguyen v. United States ,
Reference
- Full Case Name
- Juan Carlos BLANCO AYALA v. United States
- Cited By
- 5 cases
- Status
- Published