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Smart Summary

Factual and Procedural Background

Azmond Ali, a native and citizen of Bangladesh, petitioned the United States Court of Appeals, Second Circuit, for review of an August 24, 2004 decision by the Board of Immigration Appeals (BIA). The BIA denied Ali's motion to reopen his removal proceedings, which he filed to seek adjustment of status to lawful permanent resident. The motion to reopen was filed more than eleven years after the BIA dismissed his original appeal in 1992 and nearly eight years after the regulatory deadline of September 30, 1996. The BIA found the motion untimely and denied equitable tolling, concluding that Ali failed to exercise due diligence in pursuing his case, despite his awareness of the deportation order and recognition of his original counsel’s incompetence. Ali also challenged the BIA's refusal to reopen his case sua sponte under its discretionary authority. This petition for review followed.

Legal Issues Presented

  1. Whether the BIA abused its discretion in denying Ali's motion to reopen removal proceedings as untimely and in denying equitable tolling due to lack of due diligence.
  2. Whether the Court of Appeals has jurisdiction to review the BIA's discretionary decision not to exercise sua sponte authority to reopen removal proceedings under 8 C.F.R. § 1003.2(a).

Arguments of the Parties

The opinion does not contain a detailed account of the parties' legal arguments.

Table of Precedents Cited

Precedent Rule or Principle Cited For Application by the Court
Iavorski v. INS, 232 F.3d 124 (2d Cir. 2000) Equitable tolling requires reasonable diligence in pursuing the case. The Court applied Iavorski to hold that Ali failed to exercise due diligence and thus was not entitled to equitable tolling of the filing deadline.
INS v. Doherty, 502 U.S. 314 (1992) Motions to reopen are disfavored, similar to petitions for rehearing or motions for new trials based on new evidence. The Court recognized the disfavored nature of motions to reopen, supporting the deferential standard of review for the BIA’s denial.
Johnson v. Nyack Hosp., 86 F.3d 8 (2d Cir. 1996) Equitable tolling requires passing through the period sought to be tolled with reasonable diligence. Used to reinforce the diligence requirement for tolling the regulatory deadline.
Cekic v. INS, 435 F.3d 167 (2d Cir. 2006) Ineffective assistance of counsel may justify equitable tolling only if the petitioner exercised reasonable due diligence. The Court held Ali did not meet the diligence requirement, affirming the BIA’s denial of tolling.
8 C.F.R. § 1003.2(a) Gives the BIA discretionary authority to reopen or reconsider cases sua sponte at any time. The Court held it lacks jurisdiction to review the BIA’s discretionary denial of sua sponte reopening.
Enriquez-Alvarado v. Ashcroft, 371 F.3d 246 (5th Cir. 2004) Non-reviewability of BIA’s discretionary decision not to exercise sua sponte authority. The Court joined this precedent in holding no jurisdiction over BIA’s sua sponte reopening decisions.
Belay-Gebru v. INS, 327 F.3d 998 (10th Cir. 2003) Same as above regarding discretionary and unreviewable nature of sua sponte reopening. Supported the Court’s conclusion on jurisdictional limits.
Calle-Vujiles v. Ashcroft, 320 F.3d 472 (3d Cir. 2003) Same principle on discretionary, unreviewable sua sponte reopening. Reinforced the Court’s holding on lack of jurisdiction.
Ekimian v. INS, 303 F.3d 1153 (9th Cir. 2002) Discretionary nature of sua sponte reopening decisions. Joined the consensus on non-reviewability.
Luis v. INS, 196 F.3d 36 (1st Cir. 1999) Same as above. Supported the Court’s jurisdictional conclusion.
Pilch v. Ashcroft, 353 F.3d 585 (7th Cir. 2003) Failure to reopen sua sponte is a discretionary decision unreviewable by courts. Further precedent cited to uphold non-reviewability.
Anin v. Reno, 188 F.3d 1273 (11th Cir. 1999) 8 C.F.R. § 1003.2(a) grants BIA non-reviewable discretion to deny reopening. Supported the Court’s holding on lack of appellate jurisdiction over sua sponte decisions.

Court's Reasoning and Analysis

The Court reviewed the BIA’s denial of Ali’s motion to reopen under the abuse of discretion standard, recognizing that motions to reopen immigration proceedings are disfavored. The Court first affirmed that Ali’s motion was untimely, having been filed over seven years after the regulatory deadline. It then analyzed the equitable tolling claim, applying the standard from Iavorski and Cekic that requires a petitioner to demonstrate reasonable diligence in pursuing the case during the tolling period. The Court agreed with the BIA that Ali failed to show such diligence, noting his lack of effort to learn the status of his case after 1996 despite being aware of his deportation order, attempts to contact his attorney, and recognition of counsel’s incompetence during a hearing over seventeen years earlier.

Regarding Ali’s argument that the BIA should have exercised its sua sponte authority to reopen the case, the Court addressed the jurisdictional question as a matter of first impression in the Second Circuit. It reviewed the regulatory framework under 8 C.F.R. § 1003.2(a), which grants the BIA discretionary authority to reopen cases sua sponte at any time. The Court surveyed decisions from multiple other circuits holding that such discretionary decisions are unreviewable by courts. Joining this consensus, the Court concluded that it lacks jurisdiction to review the BIA’s decision not to reopen Ali’s proceedings sua sponte.

Accordingly, the Court denied the petition as to the BIA’s denial of the motion to reopen and dismissed for lack of jurisdiction the challenge to the BIA’s refusal to reopen sua sponte.

Holding and Implications

Holding: The Court held that (1) the BIA did not abuse its discretion in denying Ali’s motion to reopen as untimely and in refusing equitable tolling due to Ali’s failure to exercise reasonable diligence, and (2) the Court lacks jurisdiction to review the BIA’s discretionary decision not to exercise sua sponte authority to reopen removal proceedings under 8 C.F.R. § 1003.2(a).

Implications: The direct effect of this decision is the denial of Ali’s petition for review of the BIA’s denial of his motion to reopen and dismissal of his challenge to the BIA’s refusal to reopen sua sponte. The Court reaffirmed the high bar for equitable tolling in immigration proceedings and confirmed that sua sponte reopening decisions by the BIA are committed to agency discretion and are not subject to judicial review. No new precedent beyond this jurisdictional holding was established.

Azmond ALI, Petitioner, v. Alberto R. GONZALES, Attorney General of the United States, Respondent. United States Attorney General Alberto R. Gonzales is substituted as Respondent. See Fed.R.App.P. 43(c)(2).

PER CURIAM.

We consider here (1) whether the Board of Immigration Appeals ("BIA") abused its discretion in denying a motion to reopen removal proceedings on the basis that petitioner's motion was untimely and petitioner was not entitled to equitable tolling under Iavorski v. INS, 232 F.3d 124 (2d Cir. 2000), because he failed to exercise due diligence in pursuing his case, and, as a matter of first impression in this Circuit, (2) whether we have jurisdiction to review the BIA's decision not to exercise its " sua sponte authority" to reopen removal proceedings under 8 C.F.R. § 1003.2(a) — i.e., its decision not to exercise its authority to reopen removal proceedings on its own motion.

8 C.F.R. § 1003.2(a) provides, in relevant part, that

The [BIA] may at any time reopen or reconsider on its own motion any case in which it has rendered a decision. A request to reopen or reconsider any case in which a decision has been made by the Board, which request is made by the Service, or by any party affected by the decision, must be in the form of a written motion to the Board. The decision to grant or deny a motion to reopen or reconsider is within the discretion of the Board, subject to the restrictions of this section. The Board has discretion to deny a motion to reopen even if the party moving has made out a prima facie case for relief.

Azmond Ali, a native and citizen of Bangladesh, petitions this Court for review of an August 24, 2004 decision of the BIA denying his motion to reopen his immigration proceedings for the purpose of seeking an adjustment of status to that of lawful permanent resident. The BIA denied Ali's motion to reopen on the grounds that (1) the motion was "over 7 years late" and was therefore untimely under 8 C.F.R. § 1003.2(c)(2), and (2) that, in the circumstances presented, the filing deadline could not be tolled on account of the asserted incompetence of Ali's original counsel because Ali "made no effort after 1996 to learn of the status of his case" and therefore "fail[ed] to establish [that] he exercised diligence in pursuing his rights."

Ali's motion to reopen was filed on July 30, 2004, more than eleven years after the BIA dismissed his original appeal on September 1, 1992, and nearly eight years after the September 30, 1996 deadline imposed by 8 C.F.R. § 1003.2(c)(2).

We review the denial of motions to reopen immigration proceedings for abuse of discretion, mindful that motions to reopen "are disfavored for the same reasons as are petitions for rehearing and motions for a new trial on the basis of newly discovered evidence." INS v. Doherty, 502 U.S. 314, 322-23, 112 S.Ct. 719, 116 L.Ed.2d 823 (1992); Morgan v. Gonzales, 2006 WL 1030228, at *4 (2d Cir. Apr.20, 2006) (noting that motions to reopen are disfavored). A motion to reopen ordinarily must be filed within ninety days of the entry of the final decision in the underlying proceeding. See 8 C.F.R. § 1003.2(c)(2). This provision may be subject to equitable tolling provided that the petitioner has "pass[ed] with reasonable diligence through the period [he] seeks to have tolled." Iavorski, 232 F.3d at 134 (quoting Johnson v. Nyack Hosp., 86 F.3d 8, 12 (2d Cir. 1996)). While ineffective assistance of counsel may, under certain circumstances, provide a sufficient basis for equitable tolling, "an alien must demonstrate not only that the alien's constitutional right to due process has been violated by the conduct of counsel, but that the alien has exercised due diligence in pursuing the case during the period the alien seeks to toll." Id. at 135; see also Cekic v. INS, 435 F.3d 167, 170 (2d Cir. 2006) (noting that "no matter how egregious ineffective counsel's assistance may have been, an alien will not be entitled to equitable tolling unless he can affirmatively demonstrate that he exercised reasonable due diligence during the time period sought to be tolled").

Upon our review of the record and of the August 24, 2004 order issued by the BIA, we hold that the BIA did not abuse its discretion in determining either that (1) petitioner's motion to reopen immigration proceedings was untimely, or that (2) petitioner failed to exercise "reasonable due diligence during the time period sought to be tolled," Cekic, 435 F.3d at 170. Instead, the BIA correctly concluded that Ali "made no effort after 1996 to learn the status of his case" despite having (a) been aware of his initial deportation order, (b) made several unsuccessful attempts to contact his attorney and (c) recognized his attorney's incompetence in his initial hearing before the Immigration Judge — a hearing which took place more than seventeen years prior to Ali's decision to file a motion to reopen.

Ali catalogues numerous "blaring examples of Attorney Qazi Moid's incompetence," all of which are based on Moid's conduct during a hearing before an Immigration Judge on June 29, 1987. See Pet'r's Br. at 8-10.

Ali further argues that, despite the untimeliness of his motion to reopen and any lack of due diligence on his part, the BIA erred by declining to reopen his removal proceedings sua sponte under 8 C.F.R. § 1003.2(a). See note 1, ante. While Ali concedes that "[u]nder its own authority and discretion, the Board ` may at any time reopen or reconsider on its own motion any case in which it had rendered a decision,'" Pet'r's Br. at 35 n. 10 (emphasis added), he insists that "the Board should nonetheless have exercised such authority here as the Petitioner certainly presents compelling and exceptional circumstances upon which to act," id. at 35.

It is a matter of first impression in this Circuit whether we have jurisdiction to review the BIA's decision not to exercise its sua sponte authority to reopen removal proceedings. According to the relevant provision in the Code of Federal Regulations, the BIA "may at any time reopen or reconsider on its own motion any case in which it has rendered a decision. . . . The decision to grant or deny a motion to reopen or reconsider is within the discretion of the Board, subject to the restrictions of [8 C.F.R. § 1003.2]. The Board has discretion to deny a motion to reopen even if the moving party has made out a prima facie case for relief." 8 C.F.R. § 1003.2(a).

Several other circuits have concluded that the BIA's failure to reopen removal proceedings sua sponte is a discretionary decision that cannot be reviewed by the Courts of Appeals. See Enriquez-Alvarado v. Ashcroft, 371 F.3d 246, 249-50 (5th Cir. 2004) (holding that because the "Code of Federal Regulations suggests that no meaningful standard exists against which to judge an IJ's decision to exercise sua sponte authority to reopen deportation proceedings," such decisions are committed to the discretion of the BIA and therefore unreviewable); Belay-Gebru v. INS, 327 F.3d 998, 1000-01 (10th Cir. 2003) (same); Calle-Vujiles v. Ashcroft, 320 F.3d 472, 474-75 (3d Cir. 2003) (same); Ekimian v. INS, 303 F.3d 1153, 1157-58 (9th Cir. 2002) (same); Luis v. INS, 196 F.3d 36, 40-41 (1st Cir. 1999) (same); see also Pilch v. Ashcroft, 353 F.3d 585, 586 (7th Cir. 2003) ("[F]ailure to reopen sua sponte is a discretionary decision that is unreviewable. . . ."); Anin v. Reno, 188 F.3d 1273, 1279 (11th Cir. 1999) (holding that 8 C.F.R. § 1003.2(a) gives the BIA "non-reviewable discretion" to decline to reopen deportation proceedings).

We hereby join our sister circuits in holding that a decision of the BIA whether to reopen a case sua sponte under 8 C.F.R. § 1003.2(a) is entirely discretionary and therefore beyond our review — in other words, we lack jurisdiction to review the BIA's decision not to reopen Ali's immigration proceedings sua sponte.

* * * * * *

We have considered all of petitioners' arguments and found each of them to be without merit. Accordingly, we DENY those parts of Ali's petition for review that pertain to the BIA's denial of Ali's motion to reopen and DISMISS for lack of jurisdiction Ali's challenge to the BIA's discretionary decision not to exercise its authority to reopen proceedings sua sponte.

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ALI v. GONZALES
(May 12, 2006)