Lead Opinion
ORDER
The panel has voted to deny the petition for panel rehearing.
A sua sponte call for a vote on rehearing this case en banc was made by an active judge of this court. The call failed to receive a majority of the votes of the nonrecused active judges. Fed. R.App. P. 35. The sua sponte en banc call is rejected.
I respectfully but emphatically dissent from the denial of rehearing en banc. When applying the modified categorical approach, what must we do when we confront a textually disjunctive statute and are uncertain which statutory alternative underlies a previous conviction? The Supreme Court has answered that question in no uncertain terms: in the face of a disjunctive statute, we consult the documents of conviction, also known as the “Shepard documents,” to learn whether what the jury actually found, or what the defendant actually pleaded to, matches the federal definition of the relevant crime. The Court even told us what not to do: we need not parse state law to determine whether the statutory alternatives are “elements” or “means”; rather, we look to the Shepard documents whether the alternatives are elements or means. The panel’s opinion simply ignores, without explanation, the Court’s clear command. Remarkably, the opinion holds that we must do precisely what the Court instructed us not to do: parse state law to determine whether the statutory alternatives are elements or means. I regret our decision not to rehear this case en banc in order to respect our role as an intermediate appellate court that must follow the Supreme Court’s instructions.
A. The Court Expressly Rejected Rendon’s Approach
Petitioner Carlos Alberto Rendon was convicted of burglary as defined by California Penal Code section 459: “Every person who enters [certain locations] with intent to commit grand or petit larceny or any felony is guilty of burglary.” The inquiry in this case hinges on intent: “intent to commit ... larceny or any felony.” Id. (emphasis added). Everyone agrees that, if Petitioner was convicted of entering with intent to commit larceny, then the conviction meets the requisite intent element under the relevant immigration provision but that, if Petitioner was convicted of entering with intent to commit some other felony, such as arson, then the conviction does not meet the requisite intent element under the relevant immigration provision. Rendon v. Holder,
Analyzing the Supreme Court’s decision in Descamps v. United States, — U.S. -,
The Supreme Court expressly and unambiguously rejected that approach in Descamps. Descamps involved a conviction under the same California burglary statute.
But the Court held that a different rule applies if the text of the statute contains a list of alternatives. Writing in dissent, Justice Alito used the methodology now mandated by Rendon: he examined the state statutes at issue in the Court’s previous modified-categorical-approach cases— statutes with an express list of alternatives in the statutory text. Descamps,
The Descamps majority’s response is key, so I repeat it here in full:
The dissent delves into the nuances of various States’ laws in an effort to cast doubt on this understanding of our prior holdings, arguing that we used the modified categorical approach in eases like Taylor, Shepard, and Johnson “in relation to statutes that may not have been divisible” in the way that we have just described. Post, at 2297 (ALITO, J.). But if, as the dissent claims, the state laws at issue in those cases set out “merely alternative means, not alternative elements” of an offense, post, at 2298, that is news to us. And more important, it would have been news to the Taylor, Shepard, and Johnson Courts: All those decisions rested on the explicit premise that the laws “contained statutory phrases that cover several different crimes,” not several different methods of committing one offense. Johnson,559 U.S., at 144 ,130 S.Ct. 1265 (citing Nijhawan [v. Holder,557 U.S. 29 , 41,129 S.Ct. 2294 ,174 L.Ed.2d 22 (2009) ]). And if the dissent’s real point is that distinguishing between “alternative elements” and “alternative means” is difficult, we can see no real-world reason to worry. Whatever a statute lists (whether elements or means), the documents we approved in Taylor and Shepard — i.e., indictment, jury instructions, plea colloquy, and plea agreement — would reflect the crime’s elements. So a court need not parse state law in the way the dissent suggests: When a state law is drafted in the alternative, the court merely resorts to the approved documents and compares the elements revealed there to those of the generic offense.
Descamps,
The Descamps majority could not have been plainer. When there is no statutory list, it is critical whether a fact is an element of the crime. But the elements/means distinction is not relevant if the statute lists alternatives: “Whatever a statute lists (whether elements or means),” courts should consider “the documents we approved in Taylor and Shepard.” Id. (emphasis added). “So a court need not parse state law in the way the dissent[, and now the Rendon panel opinion,] suggests.” Id. “When a state law is drafted in the alternative, the court merely resorts to the approved documents and compares the elements revealed there to
In scores of cases, we and our sister circuits have applied that simple instruction and have looked to the Shepard documents whenever confronted with a textually disjunctive statute.
B. Footnote 2 of Descamps Is Consistent With the Main Holding
I recognize that some judges have expressed concern about how to reconcile footnote 2 with the more general holding of Descamps and that some cases have
Closer examination reveals that the two holdings may be reconciled. As an initial matter, much of the Court’s description in the text foreshadows its holding, in footnote 2, that alternative statutory phrases are different from general facts with no statutory hook. “ ‘The “modified categorical approach” that we have approved permits a court to determine which statutory phrase was the basis for the conviction.’ ” Descamps,
The textual approach is in no way problematic — constitutionally, statutorily, or otherwise. Consider a state drug-possession criminal statute that contains a list of controlled substances, some of which meet the federal definition and some of which do not. If the jury instructions required the jury to find that the defendant possessed, say, cocaine (a drug on the federal schedules), then we know that the jury unanimously found that the defendant possessed cocaine. But if the instructions required only that the defendant possessed an unspecified “controlled substance,” then we do not know whether the jury found that he or she possessed cocaine or some drug not listed in the federal schedules, such as “khat.” Similarly, if the instructions required the jury to find that the defendant possessed either cocaine or khat, then we also do not know whether the jury found that he or she possessed a federally scheduled drug unless a special verdict form or judgment makes clear that the only substance possessed was cocaine. In all cases, the modified categorical approach will return a match only if we know that what the jury found is within the federal definition. It is irrelevant whether, in the abstract, a jury would have to be unanimous in the unusual case in which evidence suggested that a defendant possibly possessed both cocaine and khat.
The Supreme Court rejected that reasoning with respect to facts with no statutory hook because, at trial, “extraneous facts and arguments may confuse the jury” and, at a plea colloquy, defendants might decline to object to extraneous facts so as not to “irk the prosecutor or court.” Descamps,
C. The Issue Is Exceptionally Important
The modified categorical approach arises frequently in both immigration and criminal cases — categories that comprise a substantial majority of our docket. Rendon’s rule will apply to future panels of this court, district court judges in the Ninth Circuit, the Board of Immigration Appeals (“BIA”), and immigration judges. Going forward, instead of simply reading the statutory text, we now will be required to delve into the nuances of a seemingly endless variety of state laws in order to determine whether, in the abstract, a jury must unanimously agree as to which statutory alternative the defendant committed — a notoriously uncertain inquiry.
Rendon also sows confusion in our existing caselaw. For example, the Supreme Court has looked to the Shepard documents when analyzing textually disjunctive
A similar analysis applies to our own cases. In cases we decided after Descamps and before Rendon, we simply have looked to the Shepard documents when confronted with a textually disjunctive statute. See, e.g., Murillo-Prado v. Holder,
This is not an idle concern. In Coronado v. Holder,
Those drug laws illustrate the absurdity of Rendon’s approach. In nearly every drug conviction in California, there is only one substance at issue. In order for the jury to convict, it must find that the defendant possessed
D. Conclusion
Rendon holds that we may look to the Shepard documents only if a statute lists alternative elements, but not if the statute lists alternative means. Rendon,
As described above, Rendon’s undue and unsupported complicating of the modified categorical approach will have substantial effects on our immigration and criminal cases. But my concern extends beyond even those considerable shores. I am troubled on a deeper level by the panel’s decision simply to ignore an on-point holding of the Supreme Court and by the full court’s decision not to rehear this case en banc to correct that egregious error. The proper functioning of our tiered judicial system requires that we follow the Supreme Court’s holdings, even if we disagree with them. With regret, I dissent from the denial of rehearing en banc.
Notes
. See, e.g., United States v. Gomez, 757 F.3d 885, 900 n. 13 (9th Cir.2014); United States v. Quintero-Junco,
. See Omargharib v. Holder,
. For example, when Justice Alito examined the juror unanimity question concerning the state statutes of the Court's three earlier cases, he was able to reach only tentative conclusions with respect to two of them. See, e.g., Descamps,
. Of course, the decision of one three-judge panel cannot overrule another three-judge panel unless intervening higher authority "is clearly irreconcilable with our prior circuit authority,” Miller v. Gammie,
. I use possession in text, but the analysis applies equally to all drug convictions, including delivery, sale, conspiracy, manufacture, etc.
Dissenting Opinion
dissenting from the denial of rehearing en banc:
Judge Graber’s dissental provides many excellent reasons why this case should have been reheard en banc. I write only to suggest an alternative reading of Descamps ’s footnote 2, one that I believe better reconciles the footnote’s text with the rest of the Court’s opinion.
In my view, footnote 2 indicates that, when confronted with a statute phrased in the disjunctive, we should look to the Shepard documents for the limited purpose of determining what that statute’s elements are. Footnote 2 states, “Whatever a statute lists (whether elements or means), the [Shepard ] documents ... reflect the crime’s elements.” Descamps v. United States, — U.S. -,
This does not mean, however, that we should use the modified categorical approach irrespective of whether a statute lists “elements” or “means.” Rather, Descamps permits us to peek at the Shepard documents in order to determine which approach to use. If those documents show that a statutory term was an element of the offense, we may employ the modified categorical approach and use the documents to determine whether a defendant committed a state crime falling within the ambit of the relevant federal statute. But if the Shepard documents instead show that the statutory alternative was simply a means of committing the offense, then we are not permitted to further use those documents to determine whether the defendant in fact committed an offense falling within the federal definition.
Such a methodology is the . best, and perhaps only, way to reconcile the text of Descamps’s footnote 2 with the rest of the opinion. Given Descamps’s 'singular focus on conducting “an elements-based inquiry” rather than an “evidence-based one,” Descamps,
I admit that examining the Shepard documents to determine an offense’s elements comes with its own set of problems. The documents may not clearly reveal which statutory terms are, in fact, elements. And, even if they do, reliance on such documents will inevitably mean that convictions under the same state statute -will sometimes be treated differently for federal law purposes. But there’s no perfect way of handling disjunctive statutes, and the approach footnote 2 adopts seems to me as good as any. It limits judicial fact-finding to the narrow and inescapable task of determining what an offense’s elements are. And it doesn’t require us to engage in the laborious and often inscrutable exercise of parsing state law.
More importantly, whether or not one agrees with Descamps’s methodology, we are obligated to implement it. Given the degree of conflict and confusion amongst the circuits, the Supreme Court will surely revisit this issue sooner rather than later. And, when it does so, I believe it will tell us in no uncertain terms that the panel’s opinion here has led us badly astray.
