KAREN NELSON MOORE, Circuit Judge.
Sami Hamdi, the minor child of an undocumented immigrant, filed a complaint under the Declaratory Judgment Act ("DJA"), 28 U.S.C. § 2201, and the Administrative Procedure Act ("APA"), 5 U.S.C. § 702, to prohibit the Department of Homeland Security ("DHS") from removing his mother on the ground that the mother's removal violated his own constitutional rights as an American citizen. Hamdi is severely disabled and is dependent on his mother's care. The district court dismissed the complaint for lack of jurisdiction under 8 U.S.C. § 1252(g), finding that Hamdi brought his complaint "on behalf of" his mother and that no other statutory or nonstatutory laws provided jurisdiction. Hamdi appeals, arguing first that the "on behalf of any alien" language in § 1252(g) does not bar jurisdiction over an action brought under the DJA to protect the distinct constitutional rights of a minor child affected by a parent's removal proceedings, and, second, that the Constitution, international law, and "the customs and usages of civilized nations" provide jurisdiction under the APA for a minor child to challenge a parent's removal proceedings. For the reasons that follow, we conclude that Hamdi's arguments are without merit and that the district court was correct to dismiss Hamdi's complaint, although we ground our decision on the basis that Hamdi has failed to state a claim upon which relief can be granted under Federal Rule of Civil Procedure 12(b)(6).
On January 26, 2009, Hamdi filed a complaint under the DJA and the APA requesting that the district court declare that DHS's removal proceeding involving his mother, Fatiha Elgharib, is contrary to law under the U.S. Constitution and international law because Hamdi is a U.S. citizen, has Down syndrome and numerous medical issues, and is dependent on his mother for his care and well-being. Specifically, Hamdi's complaint alleges:
Dist. Ct. Doc. ("Doc.") 2 (Compl. at ¶¶ 10-14). Hamdi claimed jurisdiction was proper in the U.S. District Court for the Southern District of Ohio under the DJA and the APA because
Id. (Compl. Jurisdictional Statement) (formatting errors in original).
DHS filed a motion to dismiss for lack of subject-matter jurisdiction on February 11, 2009, in lieu of an answer to the complaint, asserting first that Hamdi did not have standing to bring the suit without a separable injury from his mother's removal proceeding, and, alternatively, that 8 U.S.C. § 1252(b)(9) and (g) preclude jurisdiction and the complaint failed to establish jurisdiction under the DJA, the APA, or other international laws. Hamdi responded on February 20, 2009. In a March 6, 2009 decision, the district court rejected DHS's contention that Hamdi could not satisfy standing requirements because it found that Hamdi's allegation that his mother's removal would deprive him of his primary caregiver was a sufficient injury in fact. Doc. 11 (Dist. Ct. Op. at 2-3). However, the court granted DHS's motion to dismiss, concluding that 8 U.S.C. § 1252(g) barred Hamdi's complaint as one initiated "on behalf of any alien arising from the decision or action by the Attorney General to . . . execute removal orders against any alien."
The district court also rejected Hamdi's other asserted bases for subject-matter jurisdiction, concluding that neither the DJA nor the APA could provide independent sources of subject-matter jurisdiction, that none of the treaties Hamdi cited were binding, and that Hamdi had failed to establish how any alleged "customs and usages of civilized nations" could provide a basis for subject-matter jurisdiction. Id. (Dist. Ct. Op. at 5-7). In the same order, the district court anticipatorily denied a motion to stay Hamdi's mother's removal pending appeal. Id. at 7-8.
Hamdi appeals from the dismissal of his claims.
We review de novo a district-court decision to dismiss a complaint for lack of subject-matter jurisdiction, and we accept any factual findings that the district court made in its analysis unless it committed clear error.
We will address each jurisdictional issue in turn, taking care to remember "a familiar principle of statutory construction: the presumption favoring judicial review of administrative action." Kucana v. Holder, ___ U.S. ___, ___, 130 S.Ct. 827, 839, ___ L.Ed.2d ___, ___ (2010). Even so, we address these issues mindful that the Supreme Court recently reasserted that "[a] statute affecting federal jurisdiction `must be construed both with precision and with fidelity to the terms by which Congress has expressed its wishes.'" Id. at 840 (quoting Cheng Fan Kwok v. INS, 392 U.S. 206, 212, 88 S.Ct. 1970, 20 L.Ed.2d 1037 (1968)).
The district court dismissed Hamdi's complaint in part on the basis of the jurisdictional bar in § 1252(g). Section 1252(g) precludes the federal courts from exercising subject-matter jurisdiction over "any cause or claim by or on behalf of any alien arising from the decision or action by [DHS]
The proper interpretation of the "on behalf of" language in § 1252(g) is a matter of first impression in this circuit (and apparently in all circuits). We review de novo such questions of statutory interpretation, United States v. Parrett, 530 F.3d 422, 429 (6th Cir.2008), employing a three-step legislative-interpretation framework established by the Supreme Court: "`first, a natural reading of the full text; second, the common-law meaning of the statutory terms; and finally, consideration of the statutory and legislative history for guidance,'" Lockhart v. Napolitano, 573 F.3d 251, 255 (6th Cir.2009) (quoting United States ex rel. A+ Homecare, Inc. v. Medshares Mgmt. Group, Inc., 400 F.3d 428, 442 (6th Cir.2005) (citing United States v. Wells, 519 U.S. 482, 490-92, 117 S.Ct. 921, 137 L.Ed.2d 107 (1997))). The "natural reading of the full text" requires that we examine the statute for its plain meaning, including "`the language and design of the statute as a whole.'" Id. (quoting Parrett, 530 F.3d at 429). "If the statutory language is not clear, we may examine the relevant legislative history." Parrett, 530 F.3d at 429.
We conclude that Hamdi's claims do not fall within the meaning of § 1252(g). Although many courts have dismissed actions brought by, or asserting the rights of, a citizen child, few courts have addressed § 1252(g). Dictionary definitions are not extremely helpful to our analysis. BLACK'S LAW DICTIONARY (9th ed.2009) does not define the phrase "on behalf of" or "behalf"
We find the reasoning in Coleman persuasive. We recognize that the provisions of 8 U.S.C. § 1252 are intended to narrow the availability of judicial review for removal orders, precluding federal courts from exercising subject-matter jurisdiction over many claims related to a final order of removal. See Kucana, 130 S.Ct. at 838 (emphasizing that Congress's "aggressive[]" amendments to § 1252 were intended "to expedite removal of aliens lacking a legal basis to remain in the United States"); Reno v. Am.-Arab Anti-Discrimination Comm. (AADC), 525 U.S. 471, 482-86, 119 S.Ct. 936, 142 L.Ed.2d 940 (1999). We must be cautious, however, not to interpret broadly jurisdiction-stripping provisions in the absence of explicit congressional intent. AADC, 525 U.S. at 480-82, 119 S.Ct. 936; Prado v. Reno, 198 F.3d 286, 290 (1st Cir.1999) ("In [AADC], the Supreme Court taught that interpreting the jurisdiction limiting provisions of IIRIRA requires a close textual reading and that restrictions on jurisdiction should conform tightly to the precise language chosen by Congress.").
While it is in Hamdi's own interest to litigate his claims that his mother's removal order violates his distinct constitutional rights, it plainly would benefit her as well if Hamdi were to be successful and to secure the relief he seeks—judicial review and cancellation of his mother's removal order. One could argue that Hamdi is asking the federal courts to take his mother's substantive arguments and convert them into his own action seeking the relief that she has been denied, but the remedy Hamdi seeks does not dictate the substance of his complaint. Mustata v. U.S. Dept. of Justice, 179 F.3d 1017, 1021-23 (6th Cir.1999) (distinguishing an ineffective-assistance-of-counsel claim asking for a stay of a deportation order from a § 1252(g) challenge to the execution of the order itself); cf. Aguilar v. U.S. Immigration & Customs Enforcement Div. of the Dep't of Homeland Sec., 510 F.3d 1, 16-17 (1st Cir.2007) (holding § 1252(b)(9) barred 28 U.S.C. § 1331 jurisdiction even though available on face of undocumented aliens' complaint because "substance trumps form" and "we must look through such easy evasions as creative labeling and consider the fundamental nature of the claims asserted . . . [to not] allow collective end runs around congressional directives"
Hamdi argues in the alternative that his constitutional- and international-law-based claims provide a basis for subject-matter jurisdiction under the APA.
We agree with the district court that Hamdi has asserted a sufficient injury in fact for standing purposes, but we conclude that the district court erred in not recognizing that the constitutional nature of Hamdi's alleged injury, apparent on the face of the complaint, provided subject-matter jurisdiction as a federal question within the meaning of 28 U.S.C. § 1331. See Reno v. Catholic Soc. Servs., Inc., 509 U.S. 43, 56, 113 S.Ct. 2485, 125 L.Ed.2d 38 (1993) (holding that a challenge to regulations used in adjustment-of-status applications was not lacking a statutory jurisdiction source "since 28 U.S.C. § 1331, generally granting federal question jurisdiction, `confer[s] jurisdiction on federal courts to review agency action'" (quoting Califano v. Sanders, 430 U.S. 99, 105, 97 S.Ct. 980, 51 L.Ed.2d 192 (1977))). "A plaintiff properly invokes § 1331 jurisdiction when she pleads a colorable claim `arising under' the Constitution or laws of the United States." Arbaugh v. Y & H Corp., 546 U.S. 500, 513, 126 S.Ct. 1235, 163 L.Ed.2d 1097 (2006).
In addressing Hamdi's standing to bring this claim before the district court and in its arguments related to the APA on appeal, DHS argues that subject-matter jurisdiction is lacking because Hamdi has failed to assert a violation of a constitutionally protected right. However, "[j]urisdiction is not defeated by the possibility that the averments might fail to state a cause of action on which petitioners could actually recover." Steel Co. v. Citizens for a Better Env't, 523 U.S. 83, 89, 118 S.Ct. 1003, 140 L.Ed.2d 210 (1998) (internal quotation marks and alterations omitted). Even so, "[a] claim invoking federal-question jurisdiction under 28 U.S.C. § 1331. . . may be dismissed for want of subject-matter jurisdiction if it is not colorable, i.e., if it is `immaterial and made solely for the purpose of obtaining jurisdiction' or is `wholly insubstantial and frivolous.'" Arbaugh, 546 U.S. at 513 n. 10, 126 S.Ct. 1235 (quoting Bell v. Hood, 327 U.S. 678, 682-83, 66 S.Ct. 773, 90 L.Ed. 939 (1946)). We previously have explained the propriety of dismissal on this basis:
Primax Recoveries, Inc. v. Gunter, 433 F.3d 515, 519 (6th Cir.2006); see also Aichai Hu v. Holder, 335 Fed.Appx. 510, 514 (6th Cir.2009) (unpublished opinion) ("A claim is not colorable if it is immaterial and asserted only to support jurisdiction, or if it is utterly insubstantial and frivolous."). Although many circuit-court precedents, including some from this circuit, may undermine Hamdi's constitutional claims, we cannot say that his claims may be dismissed for lack of subject-matter jurisdiction on the grounds of insubstantiality or frivolousness.
Hamdi has failed to state a claim upon which relief can be granted because federal district courts are prohibited from reviewing and vacating a removal order, the ultimate relief that Hamdi seeks. Hamdi's complaint can be reduced to the claim that because Hamdi has constitutional rights that his mother's order of removal adversely affects, and because DHS did not consider Hamdi's rights in imposing his mother's order of removal, Hamdi is entitled to relief. His requested relief is that the federal district court should review his mother's order of removal and, taking proper account of his constitutional rights, cancel that removal order. In its arguments below, DHS asserted that § 1252(a)(5)
In Nken v. Holder, ___ U.S. ___, ___, 129 S.Ct. 1749, 1755, 173 L.Ed.2d 550 (2009), the Supreme Court explained the "changes in judicial review of immigration procedures brought on by the Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (IIRIRA), 110 Stat. 3009-546, which substantially amended the Immigration and Nationality Act (INA), 8 U.S.C. § 1101 et seq.,":
Id. Although § 1252(b)(9) has been described as the "unmistakable `zipper' clause," AADC, 525 U.S. at 483, 119 S.Ct. 936, its scope reaches only claims for judicial review "arising from any action taken or proceeding brought to remove an alien." § 1252(b)(9). The Supreme Court has contrasted § 1252(b)(9) with § 1252(g), stating that § 1252(b)(9) is a broader jurisdictional limitation for review of the legality of final orders of removal than § 1252(g) and demonstrates "the normal manner of imposing such a [general jurisdictional] limitation" for "all claims arising from deportation proceedings." AADC, 525 U.S. at 482-83, 119 S.Ct. 936; see Muka v. Baker, 559 F.3d 480, 483-85 (6th Cir.2009) (explaining impact of § 1252(a)(5) & (b)(9) to channel judicial review of legality of removal orders). "By its terms, the provision aims to consolidate `all questions of law and fact' that `arise from' either an `action' or a `proceeding' brought in connection with the removal of an alien." Aguilar, 510 F.3d at 9.
Indeed, § 1252(b)(9) "is a judicial channeling provision, not a claim-barring one." Id. at 11. We, like the First Circuit in Aguilar, cannot endorse an interpretation of the "arising from" language in § 1252(b)(9) that "swallow[s] all claims that might somehow touch upon, or be traced to, the government's efforts to remove an alien." Id. at 10.
Id. Here, Hamdi's claim raises his distinct constitutional rights that he alleges his mother's removal order adversely affects. We can decide this issue of Hamdi's constitutional rights separately from the merits of the order of his mother's removal itself because this issue of Hamdi's rights is distinct from the question of whether his mother's order of removal is invalid based on DHS's failure to consider the effects of his potential separation from his mother.
Even though we conclude that § 1252(b)(9) does not bar Hamdi's claim from proceeding under general federal-question subject-matter jurisdiction, we must still consider the district court's ability
We understand Hamdi's plight, and we are not insensitive to the substantial hardship that he may endure if and when his mother is finally removed from this country. However, for the foregoing reasons, we
JULIA SMITH GIBBONS, Circuit Judge, concurring.
Like the majority, I would affirm the dismissal of Hamdi's complaint, but my reasoning differs in some respects from that of the majority opinion. While I fully agree that the jurisdictional bar of 8 U.S.C. § 1252(g) is inapplicable to Hamdi's claims because they are not brought "on behalf of" his mother, I disagree with the majority opinion's analysis with respect to § 1252(a)(5) and 1252(b)(9). Taken together, these sections do indeed create a jurisdictional bar to Hamdi's claims.
Essentially, Hamdi seeks to challenge the order removing his mother from this country. Under § 1252(a)(5) and 1252(b)(9), judicial review of such an order can occur only in the context of a petition for review filed with the appropriate court of appeals. The subsections make no distinction between the individual against whom the order of removal is explicitly directed and a third party in establishing the petition for review as the sole vehicle for such a challenge. Thus, giving § 1252(b)(9) its channeling effect results in the funneling of Hamdi's challenge to the removal order into a petition for review, even though Hamdi was not a party to the
This result stems from the characterization of Hamdi's claim as a challenge to the removal order and one involving legal issues "arising from" his mother's immigration proceeding. If Hamdi's claims were instead collateral to the removal process, then in my view they could be brought under the APA. As the majority opinion notes, we would have jurisdiction over Hamdi's constitutional and international-law based claims under 28 U.S.C. § 1331. And the APA provides the necessary waiver of sovereign immunity to permit the claims to proceed. Because the claims were indeed collateral, they would not be immigration proceedings in which the INA supplants the APA. Under this analytical route, we would analyze the complaint's individual claims to determine whether a claim on which relief could be granted had been stated. But because I do not think that Hamdi's claims can be categorized as collateral to the removal process, I will not undertake this analysis.
The majority opinion's view of the substance of Hamdi's claim seems close to mine, but it concludes that the problem lies in the relief sought. Proper conceptualization of this case is not an easy task, but my own view is that, based on § 1252(a)(5) and 1252(b)(9), we lack jurisdiction over Hamdi's claim.
"Generations of jurists have struggled with the difficulty of distinguishing between Rules 12(b)(1) and 12(b)(6) in federal question cases. . . ." Nowak v. Ironworkers Local 6 Pension Fund, 81 F.3d 1182, 1188 (2d Cir.1996). In theory, the difference is clear: "the former determines whether the plaintiff has a right to be in the particular court and the latter is an adjudication as to whether a cognizable legal claim has been stated." 5B CHARLES ALAN WRIGHT & ARTHUR R. MILLER, FEDERAL PRACTICE AND PROCEDURE § 1350 (3d ed.2004). Yet in practice, "the difference between the two motions is often difficult to discern." Id. Primax Recoveries, Inc. v. Gunter, 433 F.3d 515, 517 (6th Cir.2006) (alteration in original). Indeed, it would have been error for the district court to rule on any merits questions after deciding that it lacked subject-matter jurisdiction. See Steel Co. v. Citizens for a Better Env't, 523 U.S. 83, 94-95, 118 S.Ct. 1003, 140 L.Ed.2d 210 (1998).
We recognize that Hamdi's claim may appear to present an Article III standing problem based on an inability of a court to grant the relief requested, a potential redressability issue. See Friends of the Earth, Inc. v. Laidlaw Envtl. Servs. (TOC), Inc., 528 U.S. 167, 180-81, 120 S.Ct. 693, 145 L.Ed.2d 610 (2000) ("[A] plaintiff must show (1) it has suffered an `injury in fact' that is (a) concrete and particularized and (b) actual or imminent, not conjectural or hypothetical; (2) the injury is fairly traceable to the challenged action of the defendant; and (3) it is likely, as opposed to merely speculative, that the injury will be redressed by a favorable decision."). As the Supreme Court has stated, "the fundamental distinction between arguing no cause of action and arguing no Article III redressability, . . . [is] that the former argument is not squarely directed at jurisdiction itself, but rather at the existence of a remedy for the alleged violation of federal rights, which issue is not of the jurisdictional sort which the Court raises on its own motion." Steel Co., 523 U.S. at 96, 118 S.Ct. 1003 (internal quotation marks and alteration omitted) (emphasis added). Here, the ultimate relief requested, securing cancellation, of his mother's order of removal after judicial review, would remedy Hamdi's injury in fact—satisfying Article III standing concerns for redressability—but the court cannot grant the relief requested under current law—implicating failure-to-state-a-claim concerns. See id.; Bell v. Hood, 327 U.S. 678, 681-84, 66 S.Ct. 773, 90 L.Ed. 939 (1946). "Standing can be established by showing that `the practical consequence [of the court's order]. . . would amount to a significant increase in the likelihood that the plaintiff would obtain relief that directly redresses the injury suffered.'" 13A CHARLES A. WRIGHT, ARTHUR R. MILLER & EDWARD H. COOPER, FEDERAL PRACTICE AND PROCEDURE § 3531.6, at 417 (3d ed.2008) (quoting Utah v. Evans, 536 U.S. 452, 463, 122 S.Ct. 2191, 153 L.Ed.2d 453 (Breyer, J.) (2002)). Unlike the situation where the complainant has merely failed to allege appropriate relief, Hamdi has alleged the proper redressable relief for his injury in fact, but a federal court may not grant such relief under current law. See Holt Civic Club v. City of Tuscaloosa, 439 U.S. 60, 65-66, 99 S.Ct. 383, 58 L.Ed.2d 292 (1978) ("[A] federal court should not dismiss a meritorious constitutional claim because the complaint seeks one remedy rather than another plainly appropriate one.").