Simmon Y. MENGHESHA, Petitioner, v. Alberto R. GONZALES, Attorney General, Respondent.
No. 04-1716.
United States Court of Appeals, Fourth Circuit.
March 13, 2006.
Modified Opinion Filed June 14, 2006.
450 F.3d 142
Finally, we do not hold that a plaintiff seeking to establish pretext by a religious employer need establish that the comparators engaged in precisely the same conduct as that said to support the adverse employment action against the plaintiff. Whether the proffered comparable conduct is sufficiently similar to avoid raising substantial constitutional questions must be judged on a case-by-case basis. Suffice it to say that under the circumstances presented here, resolving this case would require the District Court to compare the relative severity of violations of religious doctrine. Congress has not manifested an affirmative intention to apply the statute to a religious employer in the face of such constitutional difficulties. Curay-Cramer, thus, does not present in Count Three a viable claim under
V. Conclusion
We conclude that Curay-Cramer has failed to state a claim upon which relief can be granted with respect to the first two counts of her Complaint because signing the pro-choice advertisement was not protected conduct under
Before WILLIAMS, KING, and GREGORY, Circuit Judges.
Petition for review granted; vacated and remanded by published opinion. Judge GREGORY wrote the majority opinion, in which Judge KING joined. Judge WILLIAMS wrote a separate dissenting opinion.
OPINION
GREGORY, Circuit Judge:
Simmon Y. Menghesha fled his native country of Ethiopia on July 8, 2001, the day he learned that government officials had discovered his role in thwarting the arrest of anti-government protestors. The following day, Menghesha arrived in the United States and sought asylum under
I.
Following is a recitation of undisputed facts adduced in Menghesha‘s asylum application and hearing testimony. In the absence of contrary evidence or an adverse credibility determination, we accept Menghesha‘s uncontested account as true. Menghesha was born in Addis Ababa, Ethiopia on May 15, 1976. After graduating from high school, he became actively involved in the Ethiopian People‘s Revolutionary Democratic Front and Tigray People‘s Liberation Front (“EPRDF/TPLF“), the political party presently in power. In November 1997, having been identified as a committed EPRDF/TPLF member, Menghesha was offered a position with the government‘s security services. After six months of training, Menghesha was assigned to a government security detail.
As a member of the security detail, Menghesha was directed to spy on meetings of groups opposed to the government. Menghesha first carried out this task in September 1999, when, undercover, he attended a meeting of the All Amhara People‘s Organization on the occasion of the death of that organization‘s leader. During the meeting, the leader of the under-
In April 2001, Menghesha was assigned to a six-member undercover team to identify anti-government behavior at a meeting organized by the head of the Ethiopian Human Rights Council. Because Menghesha did not observe any illegal conduct, he did not furnish any information leading to arrests. Consequently, government officials accused him and his colleague Yohannes Assefa of being “in sympathy” with the opposition, threatened them with arrest, and told them they would be watched closely. J.A. 69, 185.
About a week later, Menghesha‘s undercover team attended a meeting of disgruntled Addis Ababa University students. While a high-ranking security officer negotiated with students regarding their demands for increased freedom, Menghesha and his colleagues interacted with other students and collected information on student leaders. When negotiations failed, the security team received orders to arrest five students identified as opposition leaders. The team was directed to use “any means necessary” to effectuate the arrests, including deadly force. J.A. 185. Menghesha was “disturbed” by the order to use deadly force. Id. at 71. He felt “the students were asking the right questions” and could not comprehend “why the government [was] behaving this way.” Id.
Menghesha discussed the arrest orders with Assefa. Disgusted by what was transpiring, they resolved to warn the five students in question. Having seen others beaten and killed upon arrest, Menghesha feared that the students would meet the same fate unless he intervened. J.A. 74. Further, he sympathized with the students because their request was “right and peaceful.” Id. at 77. When the security officers arrived on campus to make arrests, the five students were gone, although other security teams arrested those students they were assigned to locate. Word of the arrests spread, and students mobilized to resist and protest. Troops moved in to control the students and a deadly riot ensued.
Thereafter, the security department began to investigate who had warned the five students. Menghesha and Assefa came under suspicion when security department officials learned that they had been at the university on the afternoon before the arrests, a fact they had failed to report. As there was no proof of wrongdoing, the security department modified the men‘s duties pending further investigation, but took no other action.
On July 8, 2001, Menghesha and Assefa learned that their role in thwarting the arrests had been discovered by government officials. That same day, Menghesha and Assefa boarded a plane bound for the United States. With that, Menghesha fled the country, without saying goodbye or retrieving any belongings, and despite his apparent plans to marry. On arrival the next day, the two surrendered to immigration authorities and told their story.
At his asylum hearing, Menghesha introduced documentary evidence, including the State Department‘s Country Report on Ethiopia, to substantiate his testimony. Although Assefa was available to testify, the parties simply stipulated to his corro-
After reviewing the evidence, the IJ denied Menghesha‘s requests for asylum and withholding of removal. The IJ expressed the view that as “a sworn law enforcement official . . . it was not for [Menghesha] to pick and choose among which of the persons he was directed to arrest.” J.A. 225. He stated, “if [Menghesha] took exception to any action that the government might engage, including the arrest of students who were expressing their opposition to the government of Ethiopia, [Menghesha] had it within his ability to resign from his position as a law enforcement official.” Id. at 225-26. The IJ concluded that “[Menghesha] fears prosecution for his criminal act of obstruction of justice,” and that this “may not form the rational basis upon which the Court can conclude that he would be persecuted on account of his political opinion or any of the four remaining bases upon which asylum may be granted.” Id. at 226. The IJ thus denied Menghesha‘s asylum request without making additional factual findings that might undermine Menghesha‘s entitlement to asylum.
On May 11, 2004, the BIA affirmed the IJ‘s decision without opinion. Menghesha timely appealed the BIA‘s order, challenging only the denial of his petition for asylum.
II.
Section 208(b)(1) of the INA,
Where, as here, the BIA engages in the streamlined review process set forth in
Saldarriaga, 402 F.3d at 465; Ngarurih v. Ashcroft, 371 F.3d 182, 188 (4th Cir.2004); Blanco de Belbruno v. Ashcroft, 362 F.3d 272, 284 (4th Cir.2004). An IJ abuses its discretion in making an error of law. See United States v. Pearce, 191 F.3d 488 (4th Cir.1999) (citing Koon v. United States, 518 U.S. 81, 100, 116 S.Ct. 2035, 135 L.Ed.2d 392 (1996)).
Thus, where, as here, the IJ misapplies the law in evaluating a request for asylum, the appropriate remedy is to remand so that the agency may apply the correct legal standard in the first instance. See INS v. Ventura, 537 U.S. 12, 16, 123 S.Ct. 353, 154 L.Ed.2d 272 (2002) (per curiam) (stating that remand is required where the agency has yet to address a legal question pertinent to the asylum determination). See also Phommasoukha v. Gonzales, 408 F.3d 1011, 1015 (8th Cir.2005) (“When the BIA applies an incorrect legal standard, the proper remedy typically is to remand the case to the agency for further consideration in light of the correct standard.“); accord Qiu v. Ashcroft, 329 F.3d 140, 157 (2d Cir.2003); Griffiths v. INS, 243 F.3d 45, 55 (1st Cir.2001); Asani v. INS, 154 F.3d 719, 723 (7th Cir.1998); Martinez-Sanchez v. INS, 794 F.2d 1396, 1399 (9th Cir.1986).
III.
In denying Menghesha‘s request for asylum, the IJ committed legal, if not factual, error. In this respect, this case must be distinguished from the many instances in which we have considered whether the BIA‘s factual findings justified a denial of asylum. See, e.g., Saldarriaga, 402 F.3d at 465-67; Ngarurih, 371 F.3d at 188-89; Blanco de Belbruno, 362 F.3d at 284-85. We resolved those cases under the extremely deferential standard of review applicable to factual determinations. In this instance, however, we are concerned with the IJ‘s legal conclusions, not factual findings. We find that the IJ erred as a matter of law in holding Menghesha to an overly stringent legal standard: proving that political persecution was the government‘s sole motive.
Specifically, the IJ erred in discontinuing his inquiry after identifying the Ethiopian government‘s arguably legitimate motive to prosecute Menghesha.2
Unlike the BIA in In re Nagy, the IJ here did not consider the uncontested evidence of political motive. For instance, the IJ did not address the fact that: (1) Menghesha was threatened with “harm” if he continued to criticize the government‘s handling of dissidents; (2) he was accused of being “in sympathy” with the student protestors; and (3) he was subjected to close scrutiny and threatened with arrest for sympathizing with the students. In this respect, the IJ failed to comply with In re Nagy, and effectively held Menghesha to a more onerous standard than is required under the
For the reasons stated above, we grant the petition for review and vacate the BIA‘s denial of asylum. We, however, do not decide whether, applying the correct mixed-motive standard, Menghesha is entitled to asylum. Instead, we remand that such a determination may be made in the first instance.
PETITION FOR REVIEW GRANTED; VACATED AND REMANDED.
WILLIAMS, Circuit Judge, dissenting.
I would deny Menghesha‘s petition for review and affirm the BIA. While I agree with the majority that the
I.
My colleagues’ decision is based on their conclusion that the IJ failed to apply “the correct mixed-motive standard.” Ante at 148. Respectfully, I disagree. In order to qualify as a refugee, Menghesha must show “a well founded fear of persecution on account of race, religion, nationality, membership in a particular social group, or political opinion.”
Where I part ways with the majority, however, is with its unsupported statement that the IJ required Menghesha to show that the government planned to persecute Menghesha based solely on his political opinion. Ante at 148. The IJ‘s oral opinion never stated that Menghesha must show that he fears persecution based solely on his political opinion. The IJ never stated that he was rejecting Menghesha‘s mixed motive argument as a matter of law. Menghesha, in fact, did not specifically make a “mixed motive” argument below.
As the majority properly recognizes, however, a petitioner need not make a “mixed motive” argument because the legal standard articulated in the statute itself allows for the possibility of multiple
Moreover, the IJ found that Menghesha failed to show that it was more likely than not that he would be subject to persecution on account of his political opinion. “The IJ made a specific finding of fact that Menghesha “failed to sustain his burden of proof and persuasion . . . that there is a reasonable possibility of his persecution in the future . . . on account of one or more of the five protected enumerated grounds.” (J.A. at 223 (emphasis added)“.) See, e.g., INS v. Elias-Zacarias, 502 U.S. 478, 481, 112 S.Ct. 812, 117 L.Ed.2d 38 (1992); Gao v. Ashcroft, 299 F.3d 266, 272 (3d Cir.2002) (“Whether an asylum applicant has demonstrated past persecution or a well-founded fear of future persecution is a factual determination reviewed under the substantial evidence standard.“); Jahed v. INS, 356 F.3d 991, 1003 (9th Cir.2004) (Kozinski, J., dissenting) (“Whether persecution is ‘on account of’ a petitioner‘s political opinion is a question of fact; it turns on evidence about the persecutor‘s motives.“). In other words, in direct response to Menghesha‘s claimed fear of persecution based on his political beliefs, the IJ made an explicit finding of fact that Menghesha failed to show a fear of persecution based on his political beliefs. See, e.g., Bakhtriger v. Elwood, 360 F.3d 414, 425 (3d Cir.2004) (“The fact that there are legal principles that govern these matters . . . does not convert every question of fact or discretion into a question of law.“).
We are thus left with a situation where the IJ found that Menghesha did not suffer a fear of persecution based on an enumerated ground and a majority opinion that disagrees with that factual finding.
To be sure, while applying the applicable law, the IJ made a further finding that Menghesha only “fears prosecution for his criminal act of obstruction of justice.” (J.A. at 226.) That fear-of-criminal-prosecution finding, combined with the IJ‘s finding that Menghesha failed to show a reasonable possibility of future political persecution, leads ineluctably to the conclusion that the IJ found that Menghesha had a fear of prosecution for obstruction of justice rather than persecution for his political beliefs—not prosecution for obstruction of justice in addition to persecution for his political beliefs. Under such an understanding, there is no explicit “mixed-motive” analysis to undertake because the IJ found as a matter of fact that a mixed motive did not exist.1 Despite my
In sum, the IJ was not required to undertake a specific mixed-motive analysis. Rather, the IJ was required to examine the totality of the evidence in order to determine if Menghesha showed that the government was motivated to persecute him at least in part because of his political beliefs. This much the IJ did. If, as here, the IJ finds that a petitioner failed to meet his burden of persuasion that he fears persecution on account of a protected ground, then the petitioner is not entitled to asylum, regardless of how many alternative non-protected grounds the IJ might find motivating the government. In other words, an IJ commits a “mixed motive” legal error if he finds that a petitioner put forth sufficient evidence to show that the government is partially motivated to persecute the petitioner based on a protected ground, but nonetheless concludes that the petitioner is not entitled to asylum because the government is also motivated by legitimate grounds. The key facets of prototypical mixed motive legal error, then, are findings of both illegitimate and legitimate motives followed by a conclusion that the illegitimate motive is legally insufficient because of the existence of a legitimate motive. As I have shown, the IJ here committed no such error.
II.
Because the IJ correctly applied the
Thus, our review is most narrow, exceedingly deferential, and “recognizes the respect we must accord both the BIA‘s expertise in immigration matters and its status as the Attorney General‘s designee in deportation decisions.” Huaman-Cornelio v. BIA, 979 F.2d 995, 999 (4th Cir.1992). We apply such broad deference in asylum cases because Congress mandates that we do. See INS v. Orlando Ventura, 537 U.S. 12, 16, 123 S.Ct. 353, 154 L.Ed.2d 272 (2002) (“Within broad limits the law entrusts the agency to make the basic asylum eligibility decision here in question.“).
To grant the petition for review, Menghesha‘s evidence must compel us to find a causal relationship between the Ethiopian government‘s motive in this case and his political opinion. Because Menghesha‘s evidence fails this standard, I conclude that the IJ‘s decision was supported by reasonable, substantial evidence. In fact, this case is similar to Elias-Zacarias, where the Supreme Court outlined the proper understanding of what it means to be persecuted on account of political opinion.
In Elias-Zacarias, the Supreme Court considered an applicant who claimed he feared being kidnaped or killed by a Guatemalan guerrilla organization because he refused to join the organization. 502 U.S. at 483. The Court, however, found that Elias-Zacarias put forth no evidence that would “compel the conclusion” that he had a well-founded fear of persecution “because of [his] political opinion.” Id. at 483, 112 S.Ct. 812. The Court realized that even if Elias-Zacarias showed that he would be taken and killed by the guerrillas because of his refusal to join their group, it was “quite plausible, indeed likely, that the taking would be engaged in by the guerrillas in order to augment their troops rather than show their displeasure; and the killing he feared might well be a killing in the course of resisting being taken.” Id. at 483, 112 S.Ct. 812 n. 2. In short, his evidence failed to compel the Court that he would be persecuted because of his political beliefs.
Menghesha presented no evidence whatsoever showing direct causation, and little correlating evidence tending to show that government authorities in Ethiopia wished to persecute him on account of his political belief. It is “quite plausible, indeed likely,” then, that any action against Menghesha will take place in order to prosecute him because he deliberately impeded the government‘s criminal investigation and not because the government disagrees with any political opinion expressed by Menghesha via his actions. Id. Although he has put forth evidence that the government has investigated his conduct and flight from Ethiopia, that evidence does not show that the government‘s interest in him was based on his political opinions rather than his dereliction of duty.3
“[T]he mere existence of a generalized ‘political’ motive [or context] underlying [the supposed persecutor‘s actions] is inadequate to establish (and, indeed, goes far to refute) the proposition that [an applicant] fears persecution on account of political opinion.” Id. at 482, 112 S.Ct. 812 (emphasis in original).
I do not question that a reasonable finder of fact could infer that the government may have wished to persecute Menghesha at least in part on account of his political opinion. But Menghesha put forth no evidence compelling such a conclusion. And while Menghesha does not have to “provide direct proof of his persecutors’ motives, . . . the statute makes motive critical, [so] he must provide some evidence of [motive], direct or circumstantial. And [because] he seeks to obtain judicial reversal of the BIA‘s determination, he must show that the evidence he presented was so compelling that no reasonable fact-finder could fail to find the requisite fear of persecution. That he has not done.” Id. at 483-484, 112 S.Ct. 812.
III.
Accordingly, because I believe no legal error occurred in this case and the IJ‘s determination was supported by substantial evidence, I respectfully dissent.