TRAXLER, Chief Judge:
This appeal arises out of Gerald Wayne Timms' petition for a writ of habeas corpus under 28 U.S.C.A. § 2241 (West 2006 & Supp.2010), challenging the government's efforts to commit him civilly as a "sexually dangerous person" under the provisions of 18 U.S.C.A. § 4248 (West Supp.2010). For the reasons set forth below, we vacate the district court's order granting habeas relief to Timms and remand with instructions to dismiss the § 2241 petition without prejudice.
Section 4248 of Title 18 was enacted in July 2006 as a part of the Adam Walsh Child Protection and Safety Act. See 18 U.S.C.A. § 4248. As applicable to Timms, it provides for the civil commitment of "sexually dangerous person[s]" in federal custody for care and treatment, following the expiration of their federal prison sentences. 18 U.S.C.A. § 4248(a). A "sexually dangerous person" is defined as one "who has engaged or attempted to engage in sexually violent conduct or child molestation and who is sexually dangerous to others." 18 U.S.C.A. § 4247(a)(5) (West Supp.2010). A person is sexually dangerous to others if "the person suffers from a serious mental illness, abnormality, or disorder as a result of which he would have serious difficulty in refraining from sexually violent conduct or child molestation if released." Id.
To initiate a civil commitment proceeding under § 4248, the Attorney General, his designee, or the Director of the Federal Bureau of Prisons ("BOP"), files a certificate in the United States District Court asserting that the person is "sexually dangerous" under the provisions of the Act. 18 U.S.C.A. § 4248(a). This filing automatically stays release of the person from custody pending a mandatory hearing before the district court. See id. "If, after the hearing, the court finds by clear and convincing evidence that the person is a sexually dangerous person, the court shall commit the person to the custody of the Attorney General." Id. Ongoing psychiatric evaluation and judicial review by the court that ordered the commitment occurs thereafter, including review at the request of the committed person or his legal guardian. See 18 U.S.C.A. § 4247(e), (h). The statute expressly preserves the right to habeas corpus. See 18 U.S.C.A. § 4247(g).
This court first encountered challenges to the constitutionality of § 4248 in United States v. Comstock, 551 F.3d 274 (4th Cir. 2009), rev'd, ___ U.S. ___, 130 S.Ct. 1949, 176 L.Ed.2d 878 (2010). In Comstock, the BOP certified five respondents in its custody as sexually dangerous under § 4248 and requested evidentiary hearings. The cases were assigned to Judge Earl Britt, Senior District Judge in the Eastern District of North Carolina, who appointed the federal public defender to represent the respondents. However, no evidentiary hearings were held. Instead, Judge Britt granted the respondents' motions to dismiss as a matter of law, on the ground that § 4248 exceeded the scope of Congress's authority under the United States Constitution
On October 23, 2008, while Judge Britt's decision in Comstock was on appeal to this court, the government filed a certificate in the United States District Court for the Eastern District of North Carolina, seeking to commit petitioner Timms as a "sexually dangerous person" under § 4248. Timms, who had pled guilty in 2001 to receipt of child pornography by mail, see 18 U.S.C.A. § 2252A(a)(2) (West 2000 & Supp.2010), was scheduled to be released from the Federal Correctional Institute in Butner, North Carolina ("FCI-Butner") on November 11, 2008. The § 4248 certificate set forth Timms' criminal history of sexual violence,
The action initiated by the government, referred to herein as the "Commitment Action," was also assigned to Judge Britt. Judge Britt appointed the federal public defender to represent Timms, as requested, but simultaneously and sua sponte placed Timms' case in abeyance pending the outcome of the government's appeal of his decision in Comstock. The abeyance order reads as follows:
J.A. 158. Timms did not object to the order placing the Commitment Action in abeyance, nor did he request that the evidentiary hearing on the issue of his sexual dangerousness proceed under § 4248(a) notwithstanding the appeal in Comstock.
On October 26, 2008, three days after the Commitment Action was filed against him, Timms initiated this pro se habeas
On January 8, 2009, we affirmed Judge Britt's dismissal of the Comstock actions on the ground that § 4248 was beyond the scope of Congress's authority to enact legislation under the United States Constitution. See Comstock, 551 F.3d at 276. The following day, Timms filed a motion to dismiss the Commitment Action against him "for the reasons provided in [the Comstock] opinion affirm[ing] th[e district court's previous judgment that the Bureau of Prisons is holding [Timms] unconstitutionally." J.A. 159. Timms requested that the action against him be dismissed and that he be immediately released from custody. He did not request an evidentiary hearing. The government opposed the motion and requested that the district court continue the stay in Timms' case pending Supreme Court review of our decision in Comstock. The United States Supreme Court subsequently granted certiorari review and stayed release of the Comstock respondents.
In late October 2009, while the appeal of our decision in Comstock was pending in the United States Supreme Court, Judge Boyle held an initial status conference in Timms' habeas action with counsel for the government and the federal public defender who had been assigned by Judge Britt to represent Timms in the Commitment Action. At the request of the public defender, Judge Boyle appointed private counsel to represent Timms in his habeas action. Approximately two months later, Timms' habeas counsel filed a memorandum with the court, advising Judge Boyle that Timms was requesting his immediate release from custody based upon the Comstock decisions and requesting that an evidentiary hearing on the issue of his "sexual dangerousness" proceed under § 4248:
J.A. 71 (emphasis added). Habeas counsel advised Judge Boyle that they believed an
On January 8, 2010, habeas counsel filed an amended habeas petition, alleging that § 4248 is unconstitutional both on its face and as applied because Timms was being held beyond his release date without "being afforded an opportunity to hear and challenge the evidence underlying th[e] certification" in the Commitment Action. J.A. 75. In particular, the amended petition alleged that:
J.A. 91. In addition to immediate release, Timms sought a probable cause determination of his sexual dangerousness under § 4248 and a full evidentiary hearing under § 4248 before Judge Boyle, but he did not seek such relief in the Commitment Action before Judge Britt.
On March 31, 2010, Judge Boyle granted Timms' habeas petition, without an evidentiary hearing, holding that § 4248 is unconstitutional on its face and as applied to Timms, and ordered the government to immediately release him from custody.
On May 17, 2010, the United States Supreme Court reversed our decision in Comstock, holding that the Necessary and
On appeal, the government contends that Judge Boyle should have declined to exercise jurisdiction over Timms' habeas petition because Timms had an available, alternative avenue to raise his claims before Judge Britt in the pending Commitment Action. In response, Timms asserts that Judge Boyle had plenary power under 28 U.S.C.A. § 2241 to review his detention and was not required to defer to the Commitment Action.
For the reasons that follow, we hold that Timms should have exhausted his alternative remedies in the Commitment Action before availing himself of habeas review under § 2241. Accordingly, we vacate the district court's grant of habeas relief and remand with directions to dismiss the habeas petition without prejudice.
Under 28 U.S.C.A. § 2241, federal district courts are granted broad authority, "within their respective jurisdictions," 28 U.S.C.A. § 2241(a), to hear applications for writs of habeas corpus filed by persons claiming to be held "in custody in violation of the Constitution or laws or treaties of the United States." Id.; see Rasul v. Bush, 542 U.S. 466, 473, 124 S.Ct. 2686, 159 L.Ed.2d 548 (2004); id. at 483-84, 124 S.Ct. 2686 (noting that "[s]ection 2241, by its terms, requires nothing more" than "the District Court's jurisdiction over petitioners' custodians"). However, it has long been established that the district court's discretion to entertain habeas petitions and exercise the power of the writ is not boundless. "[P]rudential concerns, such as comity and the orderly administration of criminal justice, may require a federal court to forgo the exercise of its habeas corpus power." Munaf v. Geren, 553 U.S. 674, 693, 128 S.Ct. 2207, 171 L.Ed.2d 1 (2008) (citation and internal quotation marks omitted); see also Boumediene v. Bush, 553 U.S. 723, 128 S.Ct. 2229, 2274, 171 L.Ed.2d 41 (2008) (noting that there may be "prudential barriers to habeas corpus review" even where "there is no jurisdictional bar"); Francis v. Henderson, 425 U.S. 536, 539, 96 S.Ct. 1708, 48 L.Ed.2d 149 (1976) ("This Court has long recognized that in some circumstances considerations of comity and concerns for the orderly administration of criminal justice require a federal court to forgo the exercise of its habeas corpus power."). "The principle that a habeas court is not bound in every case to issue the writ follows from the precatory language of the habeas statute, and from its common-law origins." Munaf, 553 U.S. at 693, 128 S.Ct. 2207 (internal quotation marks and citation omitted). Section 2241(a) "provides only that a writ of habeas corpus `may be granted,'" id. (quoting 28 U.S.C.A. § 2241(a)), and Section 2243 "directs federal courts to `dispose of habeas petitions as law and justice require,'" id. (quoting 28 U.S.C.A. § 2243 (West 2006) (alteration omitted)).
Accordingly, "even where a habeas court has the power to issue the writ," the question remains "whether ... that power ought to be exercised." Munaf, 553 U.S. at 693, 128 S.Ct. 2207 (internal quotation marks and alteration omitted); see Francis, 425 U.S. at 539, 96 S.Ct. 1708. As a general rule, in the absence of "exceptional
In Stack v. Boyle, 342 U.S. 1, 72 S.Ct. 1, 96 L.Ed. 3 (1951), for example, the Supreme Court applied the rule of exhaustion and rejected a petitioner's habeas corpus challenge to a district court's bail decision as violative of the Eighth Amendment. Although noting that "habeas corpus is an appropriate remedy for one held in custody in violation of the Constitution," id. at 6, 72 S.Ct. 1, the Court held that district courts "should withhold relief in [a] collateral habeas corpus action where an adequate remedy available in the criminal proceeding has not been exhausted," id. at 6-7, 72 S.Ct. 1. Similarly, in Archuleta v. Hedrick, 365 F.3d 644 (8th Cir.2004), the court was presented with a § 2241 petition for a writ of habeas corpus filed by a petitioner who had been civilly committed under 18 U.S.C.A. § 4243. Noting that "habeas corpus is an extraordinary remedy typically available only when the petitioner has no other remedy," id. at 648 (internal quotation marks omitted), and that the civil commitment statutes provided a procedure for the remedy sought, the court remanded the petition with directions that it be transferred to the district court that entered the order of commitment, see id. at 649; see also Taniguchi v. Schultz, 303 F.3d 950, 955 (9th Cir.2002) (noting, in context of an immigration matter, that "[d]istrict courts retain jurisdiction under 28 U.S.C. § 2241 when the petitioner has no other remedy" and affirming dismissal of § 2241 habeas claim where there existed another statutory remedy to raise the challenge); Cole v. Spear, 747 F.2d 217, 220-21 (4th Cir.1984) (en banc) (holding that district court should have declined to exercise jurisdiction over habeas action where petitioner, who sought separation from military service as a conscientious objector, failed to exhaust her remedies under the military system of justice); Martin-Trigona, 702 F.2d at 388-89 (holding that the district court improvidently granted habeas corpus relief to petitioner who had been imprisoned by the bankruptcy court for civil contempt and opted to seek habeas relief instead of review by appeal in the bankruptcy proceeding).
Applying these principles to the case at bar, we hold that Timms clearly failed to exhaust his alternative remedies
The government initiated the Commitment Action against Timms prior to the expiration of his prison sentence, but the action was immediately placed in abeyance by Judge Britt pending the appeal of his decision in Comstock. Instead of challenging his continued detention in this pending Commitment Action, Timms filed and pursued a habeas action under § 2241, seeking his release (as scheduled) on the basis that § 4248 is facially unconstitutional and, later, on the basis that he should be given "the hearing to which he [was statutorily] entitled under Section 4248(a)" to determine his sexual dangerousness notwithstanding the outcome of the Comstock appeals. J.A. 71. Timms, however, was at all times free in the Commitment Action to raise his constitutional challenges to § 4248 (as the respondents did in the Comstock litigation), and to request that the district court proceed with the statutorily-mandated evidentiary hearing under § 4248, in the Commitment Action. He did not do so.
The only arguable obstacle to Timms' ability to pursue such relief was the sua sponte abeyance order issued by Judge Britt. However, while Timms often complained of the delay in the Commitment Action, it appears that he did so only in the habeas action. There is no indication that Timms ever asked Judge Britt to reconsider the sua sponte abeyance order, nor did he seek relief from the abeyance order in this court.
For his part, Timms does not seriously contend that he exhausted his remedies in the Commitment Action, or that he would not be able to do so now. Instead, relying upon the Supreme Court's decision in Boumediene, he argues that the unreviewed executive detention by the BOP and undue delay in the Commitment Action should except his case from the normal rule of exhaustion. See Boumediene, 128 S.Ct. at 2275-76. We disagree. Although we are sympathetic to Timms' frustration with the delay in the Commitment Action and his continued confinement pending the appeals in Comstock, this delay simply does not rise to the level of an "exceptional circumstance" warranting the exercise of habeas jurisdiction. Timms could have proceeded in the Commitment Action, but, for whatever reason, chose not to do so.
In Boumediene, the government detained enemy combatants at Guantanamo Bay for up to six years "without the judicial oversight that habeas corpus or an adequate substitute demands." Id. at 2275. Given the extended delay that had already transpired and the lack of probability that an Article III court "could complete a prompt review of [the detainees'] applications," the Supreme Court held that it would not require the "exhaustion of alternative remedies." Id.
Here, in contrast, the government has not detained Timms in its custody pursuant to an administrative scheme similar to the military procedure in Boumediene, nor has the government detained Timms while depriving him of judicial oversight. On the contrary, the government filed the Commitment Action in the district court pursuant to § 4248 seeking judicial review, which the Supreme Court has now ruled was within Congress's authority to enact "as necessary and proper for carrying into Execution the powers vested by the Constitution in the Government of the United States," Comstock, 130 S.Ct. at 1954 (internal quotation marks omitted). In accordance with the statute, the government requested that counsel be appointed to represent Timms, that a psychiatric or psychological examination be performed, and that the district court schedule the
Finally, and unlike in the case of Boumediene, we have no reason to doubt that the district court will now promptly review Timms' detention under § 4248, in the Commitment Action. In fact, the government filed a motion seeking such review in April 2010. Timms remains free to seek relief from the order of abeyance in the Commitment Action, raise his constitutional challenges, and request that an evidentiary hearing on the issue of his sexual dangerousness proceed as soon as possible notwithstanding the constitutional challenges raised in Comstock or otherwise.
Because Timms has failed to exhaust the alternative remedies available for review of his detention in the pending Commitment Action and has failed to demonstrate exceptional circumstances sufficient to excuse his failure, the district court should have refrained from exercising jurisdiction over Timms' habeas petition. Accordingly, we vacate the district court's order granting habeas relief and ordering Timms' immediate release, and remand to the district court with instructions to dismiss the habeas petition without prejudice. The proper procedure is for Timms to challenge his certification and detention under § 4248 in the Commitment Action and to pursue the normal avenues of appellate review if he is aggrieved thereby.
VACATED AND REMANDED WITH INSTRUCTIONS.