Lead Opinion
delivered the opinion of the Court.
Rеspondent is a Cuban immigrant with little education and almost no knowledge of English. In 1984, he was charged with murder arising from the stabbing death of a man who had allegedly attempted to intervene in a confrontation between respondent and his girlfriend in a bar.
Respondent was provided with a defense attorney and interpreter. The attorney recommended to respondent that he plead nolo contendere to first-degree manslaughter. Ore. Rev. Stat. § 163.118(l)(a) (1987). Respondent signed a plea form that explained in English the rights he was waiving by entering the plea. The state court held a plea hearing, at which petitioner was represented by counsel and his interpreter. The judge asked the attorney and interpreter if they had explained to respondent the rights in the plea form and the consequences of his plea; they responded in the affirmative. The judge then explained to respondent, in English, the rights he would waive by his plea, and asked the interpreter to translate. Respondent indicated that he understood his rights and still wished to plead nolo contendere. The judge accepted his plea.
Later, respondent brought a collateral attack on the plea in a state-court proceeding. He alleged his plea had not been knowing and intelligent and therefore was invalid because his translator had not translated accurately and completely for him the mens rea element of manslaughter. He also contended that he did not understand the purposes of the plea form or the plea hearing. He contended that he did not know he was pleading no contest to manslaughter, but rather that he thought he was agreeing to be tried for manslaughter.
Respondent then entered Federal District Court seeking a writ of habeas corpus. Respondent contended that the material facts concerning the translation were not adequately developed at the state-court hearing, implicating the fifth circumstance of Townsend v. Sain,
The Court of Appeals for the Ninth Circuit recognized that the alleged failure to translate the mens rea element of first-degree manslaughter, if proved, would be a basis for overturning respondent’s plea,
Because the holding of Townsend v. Sain that Fay v. Noia’s deliberate bypass standard is applicable in a case like this had not been reversed, it is quite understandable that the Court of Appeals applied that standard in this case. However, in light of more recent decisions of this Court, Townsend’s holding in this respect must be overruled.
In Francis v. Henderson,
In Wainwright v. Sykes,
In McCleskey v. Zant,
Again addressing the issue of state procedural default in Coleman v. Thompson,
The concerns that motivated the rejection of the deliberate bypass standard in Wainwright, Coleman, and other cases are equally applicable to this case.
Applying the cause-and-prejudice standard in cases like this will obviously contribute to the finality of convictions, for requiring a federal evidentiary hearing solely on the basis of a habeas petitioner’s negligent failure to develop facts in
Similarly, encouraging the full factual development in state court of a claim that state courts committed constitutional error advances comity by allowing a coordinate jurisdiction to correct its own errors in the first instаnce. It reduces the “inevitable friction” that results when a federal habeas court “overturn[s] either the factual or legal conclusions reached by the state-court system.” Sumner v. Mata,
Also, by ensuring that full factual development takes place in the earlier, state-court proceedings, the cause-and-prejudice standard plainly serves the interest of judicial economy. It is hardly a good use of scarce judicial resources to duplicate factfinding in federal court merely because a petitioner has negligently failed to take advantage of opportunities in state-court proceedings.
Furthermore, ensuring that full factual development of a claim takes place in state court channels the resolution of the claim to the most appropriate forum. The state court is the appropriate forum for resolution of factual issues in the first instance, and creating incentives for the deferral of factfind-ing to later federal-court proceedings can only degrade the accuracy and efficiency of judicial proceedings. This is fully consistent with, and gives meaning to, the requirement of exhaustion. The Court has long held that state prisoners must exhaust state remedies before obtaining federal habeas relief. Ex parte Royall,
The purpose of exhaustion is not to create a procedural hurdle on the path to federal habeas court, but to channel claims into an appropriate forum, where meritorious claims may be vindicated and unfounded litigation obviated before resort to federal court. Comity concerns dictate that the requirement of exhaustion is not satisfied by the mere statement of a federal claim in state court. Just as the State must afford the petitioner a full and fair hearing on his federal claim, so must the petitioner afford the State a full and fair opportunity to address and resolve the claim on the merits. Cf. Picard v. Connor,
Finally, it is worth noting that applying the cause-and-prejudice standard in this case also advances uniformity in the law of habeas corpus. There is no good reason to maintain in one area of habeas law a standard that has been rejected in the area in which it wаs principally enunciated. And little can be said for holding a habeas petitioner to one standard for failing to bring a claim in state court and excusing the petitioner under another, lower standard for failing to develop the factual basis of that claim in the same forum. A different rule could mean that a habeas petitioner would not be excused for negligent failure to object to the introduction of the prosecution’s evidence, but nonetheless would be excused for negligent failure to introduce any evidence of his own to support a constitutional claim.
The State concedes that a remand to the District Court is appropriate in order to afford respondent the opportunity to bring forward evidence establishing cause and prejudice, Brief for Petitioner 21, and we agree that respondent should have that opportunity. Accordingly, the decision of the Court of Appeals is reversed, and the cause is remanded to the District Court for further proceedings consistent with this opinion.
So ordered.
Notes
With respect to respondent’s claim that the plea form and plea procеeding were not adequately translated, the Court of Appeals concluded that state postconviction proceedings afforded petitioner ample opportunity to
Justice O’Connor asserts that Townsend v. Sain,
It is not surprising, then, that none of the cases cited by Justice O’Con-nor remotely support Townsend’s requirement for a hearing in any case where the “material facts were not adequately developed at the state-court hearing” due to petitioner’s own neglect.
Justice O’Connor puts aside our overruling of Fay v. Noia’s standard in procedural default cases on the ground that in those cases the cause- and-prejudice standard is just an acceptable precondition to reaching the merits of a habeas petitioner’s claim, but insists that applying that standard to cases in which the petitioner defaulted on the development of a claim is not subject to the same characterization. For the reasons stated in the text, we disagree. Moreover, Justice O’Connor’s position is considerably weakened by her concession that the cause-and-prejudice standard is properly applied to a factually undeveloped claim which had been exhausted but which is first asserted federally in a second or later ha-beas petition.
Contrary to Justice O’Connor’s view, post, at 17, we think it clear that the Townsend Court thought that the same standard used to deny a hearing in a procedural default ease should be used to deny a hearing in cases described in its fifth circumstance. It is difficult to conceive any other reason for our borrowing the deliberate bypass standard of Fay v. Noia, particularly if, as the dissent seems to say, post, at 17, Townsend relied on, but did not repeat, the analysis found in Fay v. Noia. Yet the dissent insists that the rejection of Fay v. Noia’s analysis in our later cases should have no impact on a case such as we have before us now.
“An application for a writ of habeas corpus . . . shall not be granted unless it appears that the applicant has exhausted the remedies available in the courts of the State . ..28 U. S. C. § 2254(b).
It is asserted by Justice O’Connor that in adopting 28 U. S. C. § 2254(d) Congress assumed the continuing validity of all aspects of Townsend, including the requirement of a hearing in all fifth circumstance cases absent a deliberate bypass. For several reasons, we disagree. First, it is evident that § 2254(d) does not codify Townsend’s specifications of when a hearing is required. Townsend described categories of cases in which evidentiary hearings would be required. Section 2254(d), however, does not purport to govern the question of when hearings are required; rather, it lists exceptions to the normal presumption of correctness of state-court
Second, to the extent that it even considered the issue of default, Congress sensibly could have read Townsend as holding that the federal habeas corpus standard for cases of default under Townsend’s fifth circumstance and cases of procedural default should be the same. Third, § 2254(d) does not mention or recognize any exception for inexcusable neglect, let alone reflect the specific standard of deliberate bypass. In the face of this silence, it should not be assumed that if there is to be a judicially created standard for equitable default, it must be no other than the deliberate bypass standard borrowed by Townsend from a decision that has since been repudiated.
We agree with Justice O’Connor that under our holding a claim invoking the fifth circumstance of Townsend will be unavailing where the cause asserted is attorney error. Murray v. Carrier, 477 U. S. 478 (1986), and Coleman v. Thompson,
Nor, to the extent it is relevant to our decision in this case, is Justice O’Connor’s argument that many forms of cause would fall under other Townsend circumstances persuasive. For example, the third and sixth circumstances of Townsend speak to the denial by a court of full and fair hearing; however, a situation where facts were inadequately developed because of interference from officials would fall naturally into the fifth circumstance.
Dissenting Opinion
with whom Justice Blackmun, Justice Stevens, and Justice Kennedy join, dissenting.
Under the guise of overruling “a remnant of a decision,” ante, at 8, and achieving “uniformity in the law,” ante, at 10, the Court has changed the law of habeas corpus in a fundamental way by effectively overruling cases decided long before Townsend v. Sain,
I
Jose Tamayo-Reyes’ habeas petition stated that because he does not speak English he pleaded nolo contendere to
Tamayo-Reyes initially, and properly, challenged the vol-untariness of his plea in a petition for postconviction relief in state court. The court held a hearing, after which it found that “[p]etitioner’s plea of guilty was knowingly and voluntarily entered.” App. 51. Yet the record of the post-conviction hearing hardly inspires confidence in the accuracy of this determination. Tamayo-Reyes was the only witness to testify, but his attorney did not ask him whether his interpreter had translated “manslaughter” for him. Counsel instead introduced the deposition testimony of the interpreter, who admitted that he had translated “mаnslaughter” only as “less than murder.” Id., at 27. No witnesses capable of assessing the interpreter’s performance were called; the attorney instead tried to direct the court’s attention to various sections of the interpreter’s deposition and attempted to point out where the interpreter had erred. When the prosecutor objected to this discussion on the ground that counsel was not qualified as an expert witness, his “presentation of the issue quickly disintegrated.”
Contrary to the impression conveyed by this Court’s opinion, the question whether a federal court should defer to this sort of dubious “factfinding” in addressing a habeas corpus
II
A
The availability and scope of habeas corpus have changed over the writ’s long history, but one thing has remained constant: Habeas corpus is not an appellate proceeding, but rather an original civil action in a federal court. See, e. g., Browder v. Director, Dept. of Corrections of Ill.,
To be sure, habeas corpus has its own peculiar set of hurdles a petitioner must clear before his claim is properly presented to the district court. The petitioner must, in general, exhaust available state remedies, § 2254(b), avoid procedural default, Coleman v. Thompson,
Habeas corpus has always differed from ordinary civil litigation, however, in one important respect: The doctrine of res judicata has never been thought to apply. See, e.g., Brown v. Allen,
Townsend “did not launch the Court in any new directions,” Weisselberg, Evidentiary Hearings in Federal Habeas Corpus Cases, 1990 B. Y. U. L. Rev. 131, 150, but it clarified how the district court should measure the adequacy of the state court proceeding. Townsend specified six circumstances in which one could not be confident that “the state-court trier of fact has after a full hearing reliably found the relevant facts.”
“(1) the merits of the factual dispute were not resolved in the state hearing; (2) the state factual determination is not fairly supported by the record as a whole; (3) the fact-finding procedure employed by the state court was not adequate to afford a full and fair hearing; (4) there is a substantial allegation of newly discovered evidence; (5) the material facts were not adequately developed at the state-court hearing; or (6) for any reason it appears that the state trier of fact did not afford the habeas applicant a full and fair fact hearing.” Ibid.
That these principles marked no significant departure from our prior understanding of the writ is evident from the view expressed by the four dissenters, who had “no quarrel with the Court’s statement of the basic govеrning principle which
The Court expressed concern in Townsend that a petitioner might abuse the fifth circumstance described in the opinion, by deliberately withholding evidence from the state factfinder in the hope of finding a more receptive forum in a federal court. Id., at 317. To discourage this sort of disrespect for state proceedings, the Court held that such a petitioner would not be entitled to a hearing. Ibid. The Townsend opinion did not need to address this concern in muсh detail, because a similar issue was discussed at greater length in another case decided the same day, Fay v. Noia,
Nearly 30 years later, the Court implies that Fay and Townsend must stand or fall together. Ante, at 5-8. But this is not so: The Townsend Court did not suggest that the issues in Townsend and Fay were identical, or that they were so similar that logic required an identical answer to each. Townsend did not purport to rely on Fay as authority; it merely referred to Fay’s discussion as a shorthand device to avoid repeating similar analysis. Indeed, reliance on Fay as authority would have been unnecessary. Townsend was essentially an elaboration of our prior cases regarding the holding of hearings in federal habeas cases; Fay represented an overruling of our prior cases regarding procedural
As the Court recognizes, ante, at 6, we have applied Townsend’s analysis ever since. See, e. g., Vasquez v. Hillery,
The Court today holds that even when the reliability of state factfinding is doubtful because crucial evidence was not presented to the state trier of fact, a habeas petitioner is ordinarily not entitled to an opportunity to prove the facts necessary to his claim. This holding, of course, directly overrules a portion of Townsend, but more than that, I think it departs significantly from the pre-Townsend law of habeas corpus. Even before Townsend, when a habeas petitioner’s claim was properly before a federal court, and when the accurate resolution of that claim depended on proof of facts that had been resolved against the petitioner in an unrеliable state proceeding, the petitioner was entitled to his day in federal court. As Justice Holmes wrote for the Court, in a case where the state courts had rejected — under somewhat suspicious circumstances — the petitioner’s allegation that his trial had been dominated by an angry mob: “[I]t does not seem to us sufficient to allow a Judge of the United States to escape the duty of examining the facts for himself when if true as alleged they make the trial absolutely void.” Moore,
B
Instead of looking to the history of the right to an eviden-tiary hearing, the Court simply borrows the cause and prejudice standard from a series of our recent habeas corpus cases. Ante, at 5-8. All but one of these cases address the question of when a habeas claim is properly before a federal court despite the petitioner’s procedural default. See Coleman v. Thompson, supra; Murray v. Carrier, 477 U. S. 478 (1986); Reed v. Ross,
The question we are considering here is quite different. Here, the Federal District Court has already determined that it will consider the claimed constitutional violation; the only question is how the court will go about it. When it
Ill
The Court’s decision today cannot be reconciled with subsection (d) of 28 U. S. C. § 2254, which Congress enacted only three years after we decided Townsend. Subsection (d) provides that state court factfinding “shall bе presumed to be correct, unless the applicant shall establish” one of eight listed circumstances. Most of these circumstances are taken word for word from Townsend, including the one at issue here; § 2254(d)(3) renders the presumption of correctness inapplicable where “the material facts were not adequately developed at the State court hearing.” The effect of the presumption is to augment the habeas petitioner’s burden of proof. Where state factfinding is presumed correct, the petitioner must establish the state court’s error “by convincing evidence”; where state factfinding is not presumed correct, the petitioner must prove the facts necessary to support his claim by only a preponderance of the evidence. Sumner v. Mata,
Section 2254(d) is not, in the strict sense, a codification of our holding in Townsend. The listed circumstances in
In enacting a statute that so closely parallels Townsend, Congress established a procedural framework that relies upon Townsend’s continuing validity. In general, therefore, overruling Townsend would frustrate the evident intent of Congress that the question of when a hearing is to be held should be governed by the same standards as the question of when a federal court should defer to state court factfind-ing. In particular, the Court’s adoption of a “cause and prejudice” standard for determining whether the material facts were adequately developed in state proceedings will frustrate Congress’ intent with respect to that Townsend circumstance’s statutory analog, § 2254(d)(3).
For a case to fit within this Townsend circumstance but none of Townsend’s other circumstances, the case will very likely be like this one, where the material facts were not
This effect is more than a little ironic. Where the state factfinding occurs at the trial itself, counsel’s ineffectiveness will not just entitle the petitioner to a hearing — it will entitle the petitioner to a new trial. Where, as in this case, the state factfinding occurs at a postconviction proceeding, the petitioner has no constitutional right to the effective assistance of counsel, so counsel’s poor performance can never constitute “cause” under the cause and prejudice standard. Coleman v. Thompson,
As noted above, the fact that § 2254(d)(3) uses language identical to the language we used in Townsend strongly suggests that Congress presumed the continued existence of this
For these reasons, I think § 2254(d) presumes the continuing validity of our decision in Townsend, including the portion of the decision that recognized a “deliberate bypass” exception to a petitioner’s right to a hearing where the material facts were not adequately developed in the state court.
Jose Tamayo-Reyes alleges that he pleaded nolo contendere to a crime he did not understand. He has exhausted state remedies, has committed no procedural default, has properly presented his claim to a Federal District Court in his first petition for a writ of habeas corpus, and would be entitled to a hearing under the standard set forth in Townsend. Given that his claim is properly before the District Court, I would not cut off his right to prove his claim at a hearing. I respectfully dissent.
Dissenting Opinion
dissenting.
By definition, the cases within the ambit of the Court’s holding are confined to those in which the factual record developed in the state-court proceedings is inadequate to resolve the legal question. I should think those cases will be few in number. Townsend v. Sain,
Our recent decisions in Coleman v. Thompson,