WPC {k_JVhu׸EĦC$N3{ %H Dxَ:~YwjUޣF#:\8…Lz"ZpհɠBCIuޙCp:5%%X֊p\T՛SDܒcJAxE&3"sA;i(; KDPa:T/hfYo]iiJLGN+'=mٲ%A e<( }JZKjL119W~qE\`!5؟^ߴīT07XQ!']X-!9[!7=ڱUt&h ]cvBYiuu}# </WBGMuNT--m :vmG]{'?Kb(רm*$+y[笀2g(#0 %U 8 0G7U:~ 0U@`nTN ^ w 4  ) m+ B E f a 0D-  q N ^ UB b3 UF;  JMMMMMMMMMMM BHP LaserJet 2100 PCL6,,,,,,,,0X<4 9Z+ Courier New ($XOXXX<6X9`("Courier NewTT(X(2{$ !XXXX        0  (9 Z(Times New Roman <6X9`("Courier NewTTXXx6X@DQX@<6X9`(CourierTTXXw6X@QX@ p5Z g56 5ݜbackup3|x U {$XXXX      *    _OftheDistrictofMassachusetts,sittingbydesignation.TABLE A(#$  0   SARETHGONZLESBoudinSelyaAudetteBerrenKeislerScadrondeportableAEDPAcuriamexcludability Cyrappear[edL:\JUDGES\Boudin\TEMPLATE\OPINIONS\ALDRICH.WPT<6X9`(*Courier 12pt10cpi- -L 9Z+.Courier New Regular  {$XXXX      1    _Exec.OfficeforImmigrationReview,Section212(c)Relief  forAliensWithCertainCriminalConvictionsBeforeApril1,1997,  69Fed.Reg.57,826(Sept.28,2004)(codifiedat8C.F.R.pts. \ 1003,1212,1240(2006)).XXXX @_ {XXXX      2    Thatsubsectionstatedinrelevantpartthat"[a]liens  lawfullyadmittedforpermanentresidencewhotemporarilyproceeded  abroadvoluntarily...andwhoarereturning...maybe \ admittedinthediscretionoftheAttorneyGeneralwithoutregard 2  totheprovisionsofsubsection(a)."8U.S.C. 1182(c)(1994).XXXX d !XXXX  _TRX3'X3' Letter3'Letter3'LetterT ? * !     XXXXi%XXUnitedStatesCourtofAppeals#XXi%#  hXXFortheFirstCircuit#XXhx# #XXXX#  A') ` dE<` A   No.052462   @XX%SARETHKIM, K  @XX%Petitioner,  G  @tt)v.   @ ALBERTOGONZLES,ATTORNEYGENERAL, O  @XX%Respondent. K  A') ` dE<` A  @@ @ ONPETITIONFORREVIEWOFANORDEROF  @l l THEBOARDOFIMMIGRATIONAPPEALS b @*A') ` dE< ` A߈ ^ @'Before C   Boudin,ChiefJudge@@((,  Selya,CircuitJudge, K andSaris, #  *      ׀DistrictJudge. G A') ` dE<` A         RobertoGonzalezandAudette,Bazar,Berren&GonzalezInc.on " briefforpetitioner. ^ #   PeterD.Keisler,AssistantAttorneyGeneral,CivilDivision, 4!$ TerriJ.Scadron,AssistantDirector,OfficeofImmigration  "Z% Litigation,andMargotL.Nadel,OfficeofImmigrationLitigation, "0& CivilDivision,DepartmentofJustice,onbriefforrespondent. #' *'ddd Xdd Xdd X(#(#,( dd ,( dd ,( dd +  8&!*8&!  SI&!+ @39036@SNovember16,2006 r'"-  RHCH(#." @39036 @ R(&!/  (* !  *J&1?     8 XXdd8*,X` XX* ` BOUDIN,ChiefJudge. SarethKimXXXXԀisanativeandcitizen  ofCambodiacurrentlyresidingintheUnitedStates.InJanuary x 1983,Kim'sstatuswasadjustedtothatof"lawfulpermanent $t resident"oftheUnitedStates.InDecember1993,Kimshotand   killedanothermanwhoKim'ssistertoldhimhadsexually |  assaultedher.InNovember1994,KimplednolocontendereinRhode ( x  Islandstatecourttoachargeofmanslaughter,R.I.Gen.Laws  $  11233(1993),andwassentencedto10yearsinprison.    ` InJanuary1995,deportationproceedingswerebegun ,|  againstKimonthegroundthathehadcommittedan"aggravated ( felony"renderinghimdeportableunder8U.S.C.  1251(a)(2)(A)(iii)(1994)(nowrenumbered1227(2000)).That 0 categoryincludesa"crimeofviolence,"id. 1101(43)(F),which , isitselfdefinedtoincludeanycrime  8 ` thathasasanelementtheuse...of 4 physicalforceagainsttheperson...of  Z another...[oranyfelony]that,byits 0 nature,involvesasubstantialriskthat  physicalforceagainst...anothermaybe   usedinthecourseofcommittingtheoffense.b !` x` x 18U.S.C.16(1994).[ "^#  ` Intheadministrativeproceeding,theimmigrationjudge # % foundfromtheevidencethatKimhadconfrontedthevictimwitha f% ' gunandshotthevictimashesoughttodriveaway;thatthecrime 'b") wasembracedbysection16'sdefinitionwhetheritcomprised ($+ voluntaryorinvoluntarymanslaughterunderRhodeIslandlaw;and j*%- thatKimwasnoteligiblefordiscretionaryreliefundersection ,f'/ 212(c)oftheImmigrationandNationalityAct,8U.S.C. 1182(c)  (1994)(nowrepealed),becausesuchreliefwasprecludedforall \ aggravatedfelonsbya1996statutoryamendmenttotheimmigration X laws,#XXXX #AntiterrorismandEffectiveDeathPenaltyActof1996   ("AEDPA"),Pub.L.No.104132, 440(d),110Stat.1214,1277XXXX. `   ` KimsoughtreviewbeforetheBoardofImmigrationAppeals  \  ("Board"or"BIA")whichin1998affirmedinabriefpercuriam   decision.Kimdidnotseekjudicialreview.However,onApril19, d  2005,KimfiledamotiontoreopenwiththeBIArenewinghis `  requestforsection212(c)relief.Thisnewmotionwasbasedona   newregulationallowingsuchapplicationstobefiledbyApril26, h 2005. #  1       d  ` Theeventsleadinguptotheregulationarecomplicated  butrelevanttothisproceeding.Theimmigrationlawsmandate l exclusionusually,aturningawayatentrypointsofalienswho h havecommittedcertaincriminaloffenses.See8U.S.C. 1182(a)  (2000).#XXXX#Untilitsrepeal,section212(c)allowedtheAttorney p  Generaltograntadiscretionarywaiverfromexcludabilityin !l" certaininstances. #  2      ׀Onitsface,section212(c)mightappeartodo "$ Kimnogoodbecause(1)heisnotbeingexcludedand(2)ithas  sincebeenrepealed.However,in1976,anothercircuitcourtruled \ thatitwasadenialofequalprotectionnottoextendthesame X waiveropportunitytothosebeingdeportedaswasavailableto   thosebeingexcluded,Francisv.INS,532F.2d268,273(2dCir. `  1976),andtheBIAthereafteracceptedthisposition.InreSilva,  \  16I.&N.Dec.26,30(BIA1976).    ` In1990,Congresslimitedsection212(c)waiversby d  prohibitinganyalienconvictedofanaggravatedfelonywhohad `  servedatermofatleastfiveyearsfromapplyingforsuchrelief.   ImmigrationActof1990,Pub.L.No.101649, 511,104Stat. h 4978,5052.In1996,Congressfurtherlimitedtheavailabilityof d section212(c)waiverswiththepassageofAEDPAsection440(d),  andthenrepealedsection212(c)entirely,IllegalImmigration l ReformandImmigrantResponsibilityActof1996,Pub.L.No.104 h 208, 304(b),110Stat.3009546,3009597.   ` Thereafter,theSupremeCourtdetermined(forreasons p  thatneednotconcernus)thatdespitesection212(c)'srepeal, !l" thosewhohadpleadedguiltyornolocontenderebeforethe1996 "$ amendmentsshouldretaintheopportunitytoseeksuchwaivers.INS t$& v.St.Cyr,533U.S.289,326(2001).TheAttorneyGeneralthen  &p!( adoptedregulationsallowingthose(likeKim)protectedbySt.Cyr '#* toreapplyforsection212(c)reliefbyadatecertain,seenote1, x)$, above,andKim'srequestforsuchreliefwasfiledbeforethe  deadline. \  ` AlthoughKim'sapplicationwasnotuntimely,theBIAin X thedecisionnowbeforeusforreviewdeterminedthatKimwasnot   eligibletoapplyforsuchrelief.Itsstatedreasonwasthathe `  hadbeenordereddeportedforhavingcommittedacrimeofviolence  \  Єatypeofaggravatedfelonyandtherewasnocounterpartground   ofexclusioninsection212(a)fromwhichonecouldseekawaiver d  ofexcludabilityundersection212(c).XXXXԀTheBoardaddedthatit `  "appear[ed]"thatKimhadservedmorethanfiveyearsandthat   "[i]fthisistrue,"hewouldinanyeventbeineligiblefor h section212(c)relief. d  ` Kimhasnowpetitionedforreviewbythiscourtofthe  BIA'sdecision.Kimseeksreversalontwodifferentgrounds: l first,thattheimmigrationjudgeerredinclassifyingKim's h manslaughterconvictionasacrimeofviolence,andsecond,thatin  anyeventtheBIAerredinsayingthathewasnoteligibletobe p  consideredforsection212(c)relief.KimalsosaysthattheBIA !l" erredinsuggestingthathehadservedfiveyearsinprison,butwe "$ doubtthattheBoardmeantthisconjectureasagroundfordenying t$& relief(itsaid"[i]f")andinanyeventdonotourselvesrelyupon  &p!( it. '#*  ` Kim'sfirstclaimthatnocrimeofviolenceoccurred x)$, eventhoughKimapproachedthevictimwithacockedgunandshot $+t&. himintheheadasthevictimfledmightseemfrivoloustoonenot  acquaintedwithimmigrationlaw.ButCongress'wording,coupled \ withrelevantcourtdecisions,hasresultedinadisregardofwhat X actuallyhappenedandafocusinsteaduponthequestionwhetherthe   crimeasdefinedbystatutehadtoinvolvetheidentified `  characteristic(here,violence).E.g.,Dicksonv.Ashcroft,346  \  F.3d44,48(2dCir.2003).    ` Kimarguesthatmanslaughtercanbecommittedby d  accident,andsounderacategoricaltestdoesnotqualifyasa `  crimeofviolence.Thisargumentisforeclosed.Kimneversought   judicialreviewoftheBIA'srulingin1998whichaffirmedthe h immigrationjudge'sfindingthathewasanaggravatedfelon;the d timelimitfordoingsoisjurisdictional,Venv.Ashcroft,386  F.3d357,359(1stCir.2004),andcannotbeendrunbya l collateralattackseveralyearslater.Infact,Kimdidnoteven h raisetheissueinthenewBIAproceedingseekingsection212(c)  reliefandtheBIAdidnotaddressit. p   ` ThisbringsustoKim'ssecond,moresubstantialclaim !l" whichisfullypreservednamely,hisclaimthatheiseligibleto "$ beconsideredforsection212(c)relief.Evenifweagreed,this t$& wouldnotbyitselfentitlehimtoremaininthiscountry.It  &p!( wouldmerelypermittheAttorneyGeneraltograntadiscretionary '#* waiverofdeportability.See#XXXX&#8U.S.C. 1182(c)(1994)(repealed)XXXX. x)$, Norisitclearhowfaranycourtwouldhaveauthoritytoreviewa $+t&. denialofthewaiver.SeeAvendanoEspejov.Dep'tofHomeland  Sec.,448F.3d503,505(2dCir.2006)(percuriam). \  ` However,forseveraldifferentreasons,thiskindof X eligibilitymayitselfbequitevaluabletoanapplicant.The   legalissueraisedbyKimisnotwithoutdifficultybecause `  althoughformallyanissueofstatutoryconstructionthe  \  possibilityofsuchawaiverfordeporteescouldnothavebeen   consideredbyCongress.Rather,itwascreatedbypostenactment d  decisionsofthecourts. `   ` Asalreadyexplained,section212(c)aswrittenwaspart   ofaschemethatjuxtaposedvariousgroundsforexclusion(listed h insection212(a))withqualifiedauthorityoftheAttorneyGeneral d (describedinsection212(c))towaiveindividualgroundsinthe  caseofcertainpermanentresidentswhowereseekingtoreenter l thiscountry.UndertheSecondCircuit'sequalprotection h analysis,acceptedbytheBIA,anystatutorywaiveropportunity  availabletoanexcludablepersonmustbeavailabletoadeportable p  person.SeeFrancis,#XXXX\3#532F.2dat273XXXX. !l"  ` But"aggravatedfelony"and"crimeofviolence,"although "$ statutorygroundsfordeportationunderspecifiedconditions,were t$& notthemselvesstatutorygroundsforexclusion;thereforethe  &p!( exclusionstatutedoesnotprovideauthorityforwaivers '#* correspondingtothosegrounds.Accordingly,Kimhasnotbeen x)$, deniedequalprotection;Congresshasnotprovidedwaiversfor $+t&. _exclusiononthesegrounds,soitneednotprovidewaiversfor  deportationonthesegrounds. \  ` Togetaroundthissyllogism,Kimarguesthatbecausehis X crimewasvoluntarymanslaughter,hewasguiltyof"acrime   involvingmoralturpitude,"whichisastatutorygroundof `  exclusion,8U.S.C._ _Ԁ1182(a)(2)(A)(_i_)(I)(2000),andwhichalso  \  waswaivable!beforesection212_(c_)wasrepealedsolongasthe   individualhadnotservedatermofimprisonmentofatleastfive d  yearsforoneormoreaggravatedfelonies.See8U.S.C._ _Ԁ1182_(c_) `  (1994)(repealed).So,Kimcontends,thewaiverauthorityshould   beextendedtohimunderSt.Cyrandtheregulations. h  ` Now,itisprobablethatKim'scrimewasvoluntary d manslaughterbutthisisnotcertain;theimmigrationjudgefound  itunnecessarytodecidewhetheritwasvoluntaryorinvoluntary l manslaughter.Norisitcertainwhethermanslaughterofeither h typewouldbeclassifiedasacrimeofmoralturpitudeunder  section212(a).Thephrase"moralturpitude"isoneofthemost p  ambiguousinthelonglistofambiguouslegalphrases,andthe !l" casesarefarfromconsistent. "$  ` Somedecisionsuselanguagethatwouldapplytoalmost t$& anyseriouscrimewithanaggravatingelement,e.g.,#XXXX9#Nguyenv.  &p!( Reno,211F.3d692,695(1stCir.2000)("[A]nassaultmayormay '#* notbeacrimeofmoralturpitude";"thedividinglineisthe x)$, aggravatingelement.").Otherdecisionsstresstheelementof $+t&. corruptionordeceit.E.g.,_Padilla_v.Gonzales,397F.3d1016,  1020(7thCir.2005)("Crimes...thatincludedishonestyor \ lyingasanessentialelement...tendtoinvolvemoral X turpitude.").XXXX    ` Inallevents,weconcludethatitwouldnotmattereven `  ifKim'sactionsinthisinstancecouldbeconsideredacrimeof  \  moralturpitudeaswellasanaggravatedfelonyandcrimeof   violence.Aswereadsection212_(c_),whattheAttorneyGeneralhad d  authoritytowaive,undercertainconditionsandbeforesection `  212(c)'srepeal,wereparticulargroundsofexclusion;St.Cyrand   theregulationsnowextendsuchwaiverauthoritytocounterpart h groundsofdeportationandpreserveitforapplicantswhomeetthe d timedeadline.   ` But,aswehavenoted,thereisnowaiverauthorityfor l onewhoisexcludedasan"aggravatedfelon"oronewhocommitsa h "crimeofviolence"(thesenotbeinggroundsofexclusion).Soit  isbesidethepointthatadifferentgroundofdeportation(e.g., p  the"crimesofmoralturpitude"ground)mighthavebeenwaivedif !l" italsohadbeeninvokedagainsthim.Ifsomeonewasfound "$ deportableontwodifferentgrounds,waiverofonewouldhardly t$& avoidtheotherforwhichwaiverhadnotorcouldnotbeinvoked.  &p!(  ` Nor,astheBoardhaspreviouslyandcorrectlyruled,is '#* thereanybasisforsayingthat,ingeneral,crimesofmoral x)$, turpitudeandaggravatedfeloniesorcrimesofviolenceare $+t&. essentiallythesamecategory.Inre_Brieva_,23I.&N.Dec.at  77273.Aggravatedfeloniesandcrimesofviolenceareboth \ categoriesofcrimesortypesofcrimes,8U.S.C._ _Ԁ1101(a)(43) X (2000),18U.S.C._ _Ԁ16(2000);dependingonthebreadthofthe   phrase"moralturpitude,"itwouldincludesomebutnotnecessarily `  allofthosecrimesandwouldsurelyencompassothersnotonthe  \  listofdefinedcrimes.    ` Ourapproachistheonetakenbythe Board,InreBrieva, d  23I.&N.Dec.766,77273(BIA2005),andtheNinthCircuit, `  Komarenkov.INS,35F.3d432,435(9thCir.1994)thelatter   beingtheonlyconsideredcircuitprecedentinpoint.TheNinth h Circuitcaseinvolvedadifferentsetofgrounds,butitusedthe d sameframeworkforanalysisthatwefollowhere.Asidefrom  constitutionalissues,theBoard'sreadingofthestatuteandits l regulationsisentitledtoweight. h  ` Ifthisrathermechanicalreadingofthelawfrustrated  anyevidentcongressionalintentorpolicy,wewouldlooktwice; p  buttheoppositeistrue.Congressneveritselfcreatedwaiver !l" authorityforthosedeportedforaggravatedfeloniesorcrimesof "$ violence(thisresultedfromjudicialdecisionandadministrative t$& action),andCongress'ownviewsonthesubjectofwaiversare  &p!( reflectedinitsrepealofsection212_(c_)initsentiretyan '#* intentioncompromisedbySt.Cyrbutonlyastotheeffectivedate x)$, oftherepeal. $+t&.  ` IfonefollowedtheapproachurgeduponusbyKim,it  wouldinsteadenlargethefrustrationofCongress'ownpolicy \ preference.Giventhepossiblebreadthofthemoralturpitude X concept,almostanyonecouldarguethatalthoughfounddeportable   foraserious_unwaivable_Ԁcrime,waiverauthorityshouldbe `  interpolatedbecausethecrimewasalsooneofmoralturpitude.  \  Indeed,theworsethecrime,thestrongertheargumentwouldbe.    ` ItisnotthebusinessofthecourtstotellCongress d  whattodoaboutpublicpolicychoices,butweareentitledtowarn `  whenthemachinerythatwehelpadministerisbreakingdown.The   currentstructureofdeportationlaw,greatlycomplicatedbyrapid h amendmentsandloopholeplugging,isnowsomethingclosertoa d manylayeredarcheologicaldigthanarationalconstruct.The  regimeisbadlyinneedofanoverhaul. l  ` Affirmed.#XXXXE#