Zhenli Ye Gon v. Frank Dyer, III
Filing
UNPUBLISHED PER CURIAM OPINION filed. Originating case number: 7:15-cv-00462-GEC-RSB. Copies to all parties and the district court. [999849487]. [15-7620]
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UNPUBLISHED
UNITED STATES COURT OF APPEALS
FOR THE FOURTH CIRCUIT
No. 15-7620
ZHENLI YE GON,
Petitioner – Appellant,
v.
FRANK E. DYER, III, Superintendent of the Central Virginia
Regional Jail; GERALD S. HOLT, U.S. Marshal for the Western
District of Virginia; JOHN F. KERRY, U.S. Secretary of
State,
Respondents – Appellees.
Appeal from the United States District Court for the Western
District of Virginia, at Roanoke.
Glen E. Conrad, Chief
District Judge. (7:15-cv-00462-GEC-RSB)
Argued:
May 12, 2016
Decided:
June 10, 2016
Before WILKINSON, MOTZ, and SHEDD, Circuit Judges.
Affirmed by unpublished per curiam opinion.
ARGUED: Gregory Stuart Smith, GREGORY S. SMITH, ATTORNEY AT LAW,
Washington, D.C., for Appellant.
William Andrew Glaser, UNITED
STATES DEPARTMENT OF JUSTICE, Washington, D.C., for Appellees.
ON BRIEF: John C. Lowe, JOHN LOWE, P.C., Bethesda, Maryland;
Ning Ye, LAW OFFICE OF NING YE, Flushing, New York, for
Appellant.
Leslie R. Caldwell, Assistant Attorney General,
Sung-Hee Suh, Deputy Assistant Attorney General, Appellate
Section, Criminal Division, UNITED STATES DEPARTMENT OF JUSTICE,
Washington, D.C.; John P. Fishwick, Jr., United States Attorney,
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Charlene Day, Assistant United States Attorney, OFFICE OF THE
UNITED
STATES
ATTORNEY,
Roanoke,
Virginia;
John
Chadwick
Johnson, FRITH ANDERSON & PEAKE, PC, Roanoke, Virginia, for
Appellees.
Unpublished opinions are not binding precedent in this circuit.
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PER CURIAM:
Seeking release from custody and to prevent his extradition
to face criminal prosecution in Mexico, Zhenli Ye Gon petitioned
the district court under 18 U.S.C. § 3188 and 28 U.S.C. § 2241.
Following
briefing
and
oral
argument,
the
court
summarily
dismissed the petition (in its amended form) with prejudice. Ye
Gon now appeals. We affirm.
I
Ye Gon was taken into custody in 2007 to face a federal
drug
charge,
but
the
United
States
eventually
dismissed
the
charge. Before the dismissal, however, Mexico requested Ye Gon’s
extradition pursuant to a treaty to prosecute him on charges of
organized crime; unlawful firearm possession; money laundering;
diversion
of
essential
chemicals;
and
drug
importation,
transportation, manufacturing, and possession. In February 2009,
a magistrate judge certified that Ye Gon is extraditable under
the treaty.
This is Ye Gon’s second habeas petition, the first having
come before us in 2014. We affirmed the denial of that petition.
See Ye Gon v. Holt, 774 F.3d 207 (4th Cir. 2014), cert. denied,
135 S.Ct. 2859 (2015). Our decision and the denial of certiorari
review
by
the
Supreme
Court
cleared
the
way
for
the
United
States to proceed with extradition, but at that time the State
Department had not finally determined whether Ye Gon should be
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extradited. See generally id. at 210 (“If the extradition judge
determines that the fugitive is extraditable, he must send his
certification of extraditability to the Secretary of State, who
has
the
final
executive
authority
to
determine
whether
to
extradite the fugitive.”).
After resolution of the first habeas proceeding, Ye Gon
filed
this
discharge
petition
from
seeking
custody
(among
pursuant
other
to
things)
§ 3188.
immediate
That
statute
generally provides that if the United States does not extradite
within
two
calendar
months
after
committing
a
person
for
rendition to a foreign government, a judge “may order the person
so committed to be discharged out of custody, unless sufficient
cause is shown to such judge why such discharge ought not to be
ordered.”
Several weeks later, while the petition was pending, the
State Department authorized Ye Gon’s extradition. In a letter
dated
September
21,
2015,
the
State
Department
official
explained (in part) that Ye Gon’s extradition is not barred by
the
Convention
prohibits
substantial
the
Against
return
grounds
of
exist
Torture
(“CAT”),
an
individual
to
for
believing
that
which
a
generally
country
he
would
where
be
in
danger of being tortured.
In response to the State Department’s authorization, Ye Gon
filed an emergency motion for stay of extradition. Additionally,
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he
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twice
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amended
his
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habeas
petition.
Ultimately,
Ye
Gon
presented five claims for the district court to consider: (1) he
should be discharged from custody under § 3188; (2) he should be
granted CAT relief because he will be tortured or killed if he
is extradited; (3) the State Department’s extradition decision
deprives him of due process; (4) any limitation of his ability
to
have
judicial
review
of
his
torture
claim
violates
the
Suspension Clause of the United States Constitution; and (5) the
Secretary of State illegally delegated the extradition decision
to
a
Deputy
Secretary
of
State.
The
parties
briefed
and/or
orally argued the merits of these claims in connection with the
court’s consideration of Ye Gon’s stay motion.
Thereafter, the district court summarily dismissed Ye Gon’s
amended petition. Additionally, the court denied Ye Gon’s motion
for a stay; however, the court granted a 7-day stay to allow
time to file an appeal. In a memorandum opinion accompanying the
order, the court addressed the merits of Ye Gon’s claims. 1
The district court first considered Ye Gon’s request for
discharge pursuant to § 3188. Initially, the court found that
the request could be denied because it was premature. In the
court’s
view,
the
§
3188
two-month
1
period
began
to
run
on
The court explained that the parties’ extensive arguments
about the merits of the claims made the petition ripe for
disposition.
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February 9, 2011, when a magistrate judge found Ye Gon to be
extraditable
and
issued
a
commitment
order;
the
period
was
tolled on February 10, 2011, when Ye Gon filed his first habeas
petition; and it remained tolled until July 7, 2015, when we
issued our mandate from his prior appeal. Based on this, the
court concluded that the two-month period did not expire until
September
7,
2015,
several
days
after
Ye
Gon
filed
this
petition.
Despite its conclusion that the petition was premature, the
district court did not actually rule on that ground. Instead,
the court concluded that sufficient cause had been shown to deny
the request for discharge on the merits. The court noted that
the State Department’s decision was made, at most, nine days
after the two-month period expired, and it found “no evidence in
the record that the State Department has been anything less than
diligent in its consideration of the extensive materials Ye Gon
has
submitted
extradited
death.”
to
J.A.
in
support
Mexico,
303.
The
he
of
his
will
court
be
multi-part
at
risk
explained
that
claim,
of
that
torture
the
if
and/or
Secretary
of
State’s decision was “complex” and involved review of “court
documents, expert testimony, and thousands of pages of materials
Ye
Gon
submitted
during
the
court
proceedings
in
which
he
challenged his extradition on many grounds other than the risk
of torture.” Id. at 303, 304. The court also determined that Ye
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Gon was not prejudiced by the asserted brief delay beyond the
two-month deadline and the charges against Ye Gon are serious.
The court stated: “[N]o useful purpose is served in discharging
Ye Gon after nearly seven years of extradition litigation, only
to
face
the
potential
for
that
extradition
process
to
begin
anew.” Id. at 304.
The district court next turned to Ye Gon’s claim that he
will be tortured and/or killed if extradited. Ye Gon conceded,
and
the
court
Costner,
concluded,
480
F.3d
664
that
(4th
our
Cir.
decision
2007),
in
Mironescu
prevented
it
v.
from
considering the claim. In Mironescu, we interpreted CAT and the
Foreign
Affairs
Reform
and
Restructuring
(“FARR”)
Act
(which
implements CAT) and held that “courts may consider or review CAT
or FARR Act claims as part of their review of a final removal
order, [but] they are otherwise precluded from considering or
reviewing such claims.” Id. at 674.
The district court then considered Ye Gon’s contention that
he was denied due process by the manner in which the State
Department
has
reviewed
and
decided
his
case,
including
its
refusal to allow his counsel to present his claim in person and
its
issuance
of
a
letter
decision
which
he
contends
is
unconstitutionally vague. The court rejected this claim, finding
in
pertinent
procedural
part
that
protection
“Ye
Gon
received
contemplated
7
by
the
extent
Congress
of
under
the
the
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statutes at issue: consideration and an executive decision on
the CAT claim before the surrender warrant was issued.” J.A.
308. For support, the court relied on Peroff v. Hylton, 563 F.2d
1099, 1102 (4th Cir. 1977), in which we noted that “matters
involving extradition have traditionally been entrusted to the
broad
discretion
flexibility
heightened
in
in
of
the
the
executive,”
exercise
of
international
and
Executive
extradition
the
“need
for
discretion
proceedings
is
which
necessarily implicate the foreign policy interests of the United
States.”
Applying
those
general
principles
in
Peroff,
we
rejected the claim that due process requires a “‘fair hearing’
before
the
Secretary
of
State
on
the
propriety
of
.
.
.
extradition.” Id.
Next, the district court addressed and rejected Ye Gon’s
claim that the Suspension Clause prohibits courts from applying
the FARR Act so as to preclude consideration of his torture
claim. 2 Citing Fernandez v. Phillips, 268 U.S. 311 (1925), the
court noted that habeas review in the extradition context has
traditionally been limited to determining whether: (1) the court
has
jurisdiction
over
the
petitioner,
2
(2)
the
extradition
The Suspension Clause (Art. I, § 9, cl. 2) specifies that
“[t]he Privilege of the Writ of Habeas Corpus shall not be
suspended, unless when in Cases of Rebellion or Invasion the
public Safety may require it.”
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request
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falls
within
the
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scope
of
the
treaty,
and
(3)
the
foreign charge is supported by probable cause. The court found
that “Ye Gon has clearly had the full benefit of habeas review
of the extradition request under this standard.” J.A. 310. The
court also relied on Munaf v. Geren, 553 U.S. 674 (2008), in
which the Supreme Court rejected the habeas petitioner’s claim
that
he
criminal
faced
torture
prosecution.
if
The
transferred
Munaf
Court
to
Iraqi
explained
custody
that
for
“[s]uch
allegations are of course a matter of serious concern, but in
the
present
context
that
concern
is
to
be
addressed
by
the
political branches, not the Judiciary.” Id. at 700.
Finally, the district court considered Ye Gon’s claim of
improper delegation of authority by the Secretary of State. The
court
found
this
claim
to
be
“without
merit”
because
the
“delegation of authority from the Secretary does not appear to
be inconsistent with the regulations or the statutes, and falls
within the statutory provision empowering the Secretary to make
appropriate delegations.” J.A. 312-13.
II
On appeal, Ye Gon challenges the district court’s ruling on
four of the five claims presented below, and he also raises
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several new claims for the first time. 3 Initially, we note that
because
Ye
Gon
does
not
contend
that
the
court
erred
in
dismissing his improper delegation of authority claim, we need
not
consider
(noting
that
that
the
claim.
See
delegation
Brief
issue
of
“is
Appellant,
not
at
advanced
9
n.4
here”).
Moreover, although Ye Gon continues to press his torture claim,
he concedes (as he did below) that we are bound to reject the
claim under Mironescu. Further, applying the settled rule of
this Court, we decline to consider the new claims Ye Gon has
raised on appeal. See In re Under Seal, 749 F.3d 276, 285 (4th
Cir. 2014) (explaining that we do not consider issues raised for
the first time on appeal absent exceptional circumstances).
That
carefully
abuse
its
discharge
leaves
for
reviewed.
discretion
from
resolution
We
hold
by
custody.
three
claims,
which
we
the
district
court
did
not
request
for
that
denying
The
Ye
court
Gon’s
applied
§ 3188
the
correct
have
legal
principles and adequately explained its rationale, and we are
satisfied that it did not commit a clear error of judgment. See
United
States
v.
Cowley,
814
F.3d
691,
698
(4th
Cir.
2016)
(explaining abuse of discretion standard of review). We further
hold that the court did not err by dismissing the due process
3
After Ye Gon filed this appeal, we granted his motion for
stay pending appeal.
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and
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Suspension
substantially
(pertinent
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Clause
on
portion
claims.
the
court’s
of
district
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As
to
these
reasoning,
court
claims,
see
order),
J.A.
which
we
rely
308-11
we
have
briefly summarized above.
For
these
reasons,
we
affirm
the
final
order
of
the
district court dismissing Ye Gon’s claims.
AFFIRMED
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