Bovovo v. Ashcroft , 120 F. App'x 936 ( 2004 )


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  •                                UNPUBLISHED
    UNITED STATES COURT OF APPEALS
    FOR THE FOURTH CIRCUIT
    No. 03-1645
    FRANCIS BOVOVO,
    Petitioner,
    versus
    JOHN D. ASHCROFT, Attorney General,
    Respondent.
    On Petition for Review of an Order of the Board of Immigration
    Appeals. (A79-243-250)
    Argued:   September 28, 2004             Decided:   December 17, 2004
    Before MICHAEL and MOTZ, Circuit Judges, and Henry E. HUDSON,
    United States District Judge for the Eastern District of Virginia,
    sitting by designation.
    Petition granted by unpublished per curiam opinion.
    ARGUED: Bokwe Godwill Mofor, Silver Spring, Maryland, for
    Petitioner. Jamie M. Dowd, UNITED STATES DEPARTMENT OF JUSTICE,
    Office of Immigration Litigation, Washington, D.C., for Respondent.
    ON BRIEF: Peter D. Keisler, Assistant Attorney General, Civil
    Division, Linda S. Wendtland, Assistant Director, Michelle R.
    Thresher, UNITED STATES DEPARTMENT OF JUSTICE, Office of
    Immigration Litigation, Washington, D.C., for Respondent.
    Unpublished opinions are not binding precedent in this circuit.
    See Local Rule 36(c).
    PER CURIAM:
    Petitioner, Francis Bovovo (“Bovovo”), seeks review of an
    Order of the Board of Immigration Appeals (“Board”) denying his
    Motion to Reconsider the Board’s summary dismissal of his appeal
    for failure to file a brief.   For the following reasons, we grant
    the petition, vacate the Board’s Order denying Bovovo’s Motion to
    Reconsider, and remand to the Board for further findings consistent
    with this opinion.
    Bovovo, a native and citizen of Cameroon, arrived in the
    United States in April 2002.    Immediately upon his arrival, the
    United States detained Bovovo and commenced removal proceedings.
    Bovovo conceded removability and sought relief in the form of
    political asylum, withholding of removal, and protection under the
    Convention Against Torture.    After a hearing on the merits of
    Bovovo’s asylum-related applications, the Immigration Judge issued
    an oral decision denying all relief.1
    Bovovo timely appealed the decision of the Immigration Judge
    to the Board by submitting a Notice of Appeal (“Form EOIR-26").
    Item 4 on Form EOIR–26 conspicuously states that “[t]he failure to
    1
    The Immigration Judge noted several inconsistencies in
    Bovovo’s testimony and his statements to immigration officials when
    he attempted to enter the United States, and found him to be an
    incredible witness.    The Immigration Judge also found, in sum,
    that, even if the credibility findings were to be reversed by a
    higher court, Bovovo did not meet his burden of demonstrating that
    he had a well-founded fear of persecution or that there was a clear
    probability of him being tortured if he was returned to Cameroon.
    2
    specify the factual or legal basis for the appeal may lead to a
    summary dismissal without further notice, unless you give specific
    details in a timely, separate written brief or statement filed with
    the board.”   In the space below this warning, Bovovo stated in some
    detail his reasons for appealing the decision of the Immigration
    Judge.2
    In addition, Bovovo checked the box on Item 6 of Form EOIR-26
    indicating that he “will” file a separate written brief in support
    of his appeal.     According to Bovovo, this was done inadvertently.
    A conspicuous warning appears directly beneath Item 6 stating that
    the appeal “may be summarily dismissed if you indicate in Item #6
    that you will file a separate written brief or statement and,
    within the time set for filing, you fail to file the brief or
    statement and do not reasonably explain such failure.”3
    On November 4, 2002, the Board sent Bovovo a transcript of the
    testimony   from   the   hearing,   a   copy   of   the   decision   of   the
    Immigration Judge, and a briefing schedule indicating that Bovovo’s
    brief was due on November 25, 2002.       On the briefing schedule was
    another warning reminding Bovovo that “[i]f you fail to file the
    2
    In three separate paragraphs in the space provided on Form
    EOIR–26, Bovovo appears to identify findings of fact and
    conclusions of law that are challenged.     In addition, Bovovo
    supports his contentions with case law.
    3
    Bovovo signed and dated the form on the signature line
    located directly beneath the warning for Item 6.
    3
    brief or statement within the time set for filing in this briefing
    schedule, the Board may summarily dismiss your appeal.”
    It is undisputed that Bovovo never filed an appeal brief,
    never inquired about the status of his case, and never informed the
    Board of any intent not to file a brief.     On January 22, 2003, the
    Board    summarily   dismissed   Bovovo’s   appeal   citing   8   C.F.R.
    3.1(d)(2)(i)(E) (now set forth at 8 C.F.R. 1003.1(d)(2)(i)(E)
    (2003)), which permits the Board to summarily dismiss an appeal
    when a brief is not filed after a party indicates that one will be
    filed.    No other reason for the summary dismissal was given.4
    Bovovo explained that, because he had detailed the factual and
    legal basis of the appeal and provided controlling authorities on
    Form EOIR-26 , he deemed it unnecessary to file a separate brief.
    Bovovo filed a Motion to Reconsider on January 30, 2003.         On
    May 1, 2003, the Board denied Bovovo’s Motion to Reconsider.         The
    instant appeal was filed on May 28, 2003.        We note that Bovovo
    dedicates a significant portion of his brief to rearguing the
    merits of his asylum-related claims.         However, the only issue
    4
    The entire Order states, “The appeal is dismissed.        The
    appellant checked Box 6 on the Notice of Appeal (Form EOIR-26)
    indicating that a separate written brief or statement would be
    filed in addition to the reasons for appeal accompanying the Notice
    of Appeal. Block 6 is immediately followed by a clear warning that
    the appeal may be subject to summary dismissal if the appellant
    indicates that such a brief or statement will be filed and, within
    the time set for filing, you fail to file the brief or statement
    and do not reasonably explain such failure.”
    4
    properly before us is whether the Board abused its discretion in
    denying Bovovo’s Motion to Reconsider.5
    A decision to grant a motion to reconsider is within the
    discretion of the Board.     
    8 C.F.R. § 1003.2
    (a).    A motion to
    reconsider “shall state the reasons for the motion by specifying
    errors of fact and law in the prior board decision and shall be
    supported by pertinent authority.” 
    8 C.F.R. § 1003.2
    (b)(1). Here,
    in denying Bovovo’s motion, the Board stated only that, “[t]he
    failure to file a brief in a timely manner is an adequate basis
    upon which to dismiss an appeal.     We did so and see no error in
    that decision.   Accordingly, the motion to reconsider is denied.”
    Thus, the issue before the Court, at core, is whether the Board has
    the authority to summarily dismiss an immigrant’s appeal for
    failure to file a brief, even when the Board is otherwise properly
    informed of the reasons for the appeal.
    5
    It is apparent to this Court that Bovovo desires to
    relitigate the merits of his case on appeal by asking us to review
    the Board’s initial Order of January 22, 2003. However, the issues
    resolved in that proceeding are not properly before this Court. A
    deportee must file his petition for appeal within thirty days of a
    final order.    
    8 U.S.C. § 1252
    (b)(1).    The time limitation is
    “jurisdictional in nature and must be construed with strict
    fidelity to [its] terms.” Stone v. INS, 
    514 U.S. 386
    , 405 (1995).
    The filing of a motion to reconsider does not toll the running of
    the limitation period. 
    Id. at 394
    . In the present case, after
    Bovovo failed to file his brief, the Board issued its order of
    dismissal on January 22, 2003. Thus, Bovovo was required to file
    his appeal by February 22, 2003. The instant appeal was filed on
    May 28, 2003. Consequently, the appeal is not timely as to the
    Board’s original order, and may only be considered by us in the
    context of the Board’s denial of the Motion to Reconsider ordered
    on May 1, 2003.
    5
    There are two sections of the INS regulations pertinent to the
    issue at hand.     First 
    8 C.F.R. § 1003.3
    (d)(2)(i) expressly grants
    the Board authority to summarily dismiss appeals for any one of
    eight (8) different reasons.           
    8 C.F.R. § 1003.3
    (d)(2)(i)(A – H).
    One of those reasons includes when “[t]he party concerned indicates
    on Form EOIR-26 . . . that he . . . will file a brief or statement
    in support of the appeal and thereafter does not file such brief or
    statement, or reasonably explain his or her failure to do so,
    within the time set for filing.”              
    8 C.F.R. § 1003.1
    (d)(2)(i)(E).
    However, 
    8 C.F.R. § 1003.3
    (b) states that “[a] party taking the
    appeal must identify the reasons for the appeal in the Notice of
    Appeal   (Form   EOIR–26      or   Form   EOIR–29)   or   in   any   attachments
    thereto,   in    order   to    avoid      summary    dismissal       pursuant   to
    § 1003.1(d)(2)(i).”      In addition, § 1003.3(b) states the specific
    requirements necessary to avoid summary dismissal and adequately
    apprise the Board of the nature of the appeal.6
    Based upon this language, one could argue that a sufficient
    statement of reasons in the notice of appeal would serve to prevent
    6
    “The statement must specifically identify the findings of
    fact, the conclusions of law, or both, that are being challenged.
    If a question of law is presented, supporting authority must be
    cited. If the dispute is over the findings of fact, the specific
    facts contested must be identified.     Where the appeal concerns
    discretionary relief, the appellant must state whether the alleged
    error relates to statutory grounds of eligibility or to the
    exercise of discretion and must identify the specific factual and
    legal finding or findings that are being challenged.” 
    8 C.F.R. § 1003.3
    (b).
    6
    summary dismissal only under subsection (A) of § 1003.1(d)(2)(i),
    which    permits   dismissal   when    reasons   for    the   appeal   are   not
    specified in the notice.       However, in this Court’s view, a better
    reading, implicit in the plain language of § 1003.3(b) and the
    purpose of the regulations, is that a sufficient statement of
    reasons in the notice of appeal prohibits            summary dismissal based
    upon any of the reasons set forth in § 1003.1(d)(2)(i), including
    dismissal for failure to file a brief.7              In other words, summary
    dismissal for failure to file a brief is only appropriate where the
    alien checks Item 6 that he will file a separate brief and the
    reasons for the appeal stated in the required section on Form
    EOIR–26 do not comport with the requirements of § 1003.3(b) and do
    not adequately notify the Board of the reasons for the appeal.8
    In    dismissing   Bovovo’s      appeal   and    subsequent   Motion     to
    Reconsider, the Board abused its discretion by basing its decisions
    7
    At the very least, the limiting language in § 1003.3(b)
    creates ambiguity as to whether an appeal may be dismissed for
    failure to file a brief when the alien has adequately stated the
    reasons for the appeal on Form EOIR–26, and “lingering ambiguities
    in deportation laws must be construed in favor of the alien.” INS
    v. St. Cyr, 
    533 U.S. 289
    , 320 (2001).
    8
    We note that the seminal case on the narrow point of law at
    issue is Casas-Chavez v. INS, 
    300 F.3d 1088
     (9th Cir. 2002), in
    which the Ninth Circuit held that a petitioner’s satisfaction of
    the specificity requirement in § 1003.3(b), despite the failure to
    file a promised brief, is sufficient to prevent summary dismissal
    of an appeal because it provides the Board with the requisite
    notice. The other circuits that have interpreted or have provided
    a judicial gloss to the principle espoused by the Ninth Circuit,
    including the cases cited by Appellee, have not been faced with the
    particular issue at hand or have distinguished it on the facts.
    7
    solely on Bovovo’s failure to file a brief after checking the box
    in Item 6 stating that he would do so.         In both decisions, the
    Board failed to even mention, much less analyze for sufficiency,
    Bovovo’s   stated   reasons   for    the   appeal   on    Form   EOIR–26.
    Consequently, we are unable to determine whether the Board was
    adequately informed of Bovovo’s legal and factual contentions on
    appeal.    The Supreme Court has counseled courts of appeals to
    refrain from rendering their own findings of fact or resolving
    issues not yet considered by the Board.       See INS v. Ventura, 
    537 U.S. 12
    , 16 (2002).   Rather, “a court of appeals should remand a
    case to an agency for decision of a matter that statutes place
    primarily in agency hands.”    
    Id.
          Accordingly, we grant Bovovo’s
    petition, vacate the Board’s Order, and remand for the Board to
    consider whether Bovovo’s Notice of Appeal sufficiently states the
    basis for his appeal under the standards set forth in 
    8 C.F.R. § 1003.3
    (b). If the basis for Bovovo’s appeal is sufficiently stated
    on the Notice of Appeal, the Board should consider the merits of
    his appeal.
    PETITION GRANTED
    8
    

Document Info

Docket Number: 03-1645

Citation Numbers: 120 F. App'x 936

Judges: Michael, Motz, Hudson, Eastern, Virginia

Filed Date: 12/17/2004

Precedential Status: Non-Precedential

Modified Date: 11/5/2024