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TOUTOUNJIAN v. INS

April 17, 1998

PAULIK TOUTOUNJIAN, Petitioner, -vs- IMMIGRATION AND NATURALIZATION SERVICE, Respondent.

JOHN T. CURTIN, United States District Judge.


The opinion of the court was delivered by: CURTIN

DECISION and ORDER

CURTIN, District Judge

 BACKGROUND

 Currently pending is petitioner Paulik Toutounjian's motion for attorneys' fees and costs (Item 22). Petitioner filed a petition for writ of habeas corpus with this court on May 1, 1996, after both an immigration judge and the Board of Immigration of Appeals ("BIA") concluded that petitioner was excludable from the United States because of his criminal convictions in Canada. On February 12, 1997, this court reversed the BIA's decision and ordered the Immigration and Naturalization Service ("INS") to process petitioner's visa application in a manner consistent with the court's determination that petitioner was not convicted of a crime of moral turpitude. Toutounjian v. INS, 959 F. Supp. 598, 606 (W.D.N.Y. 1997). The INS filed a motion pursuant to Fed. R. Civ. P. 59(e) requesting the court to reconsider its decision or, in the alternative, remand the case to the BIA. On May 7, 1997, the court denied the INS's motion for reconsideration (Item 21). The judgment of this court became final on July 7, 1997, since the INS did not file a notice of appeal by that date.

 Petitioner argues that he is entitled to attorneys' fees pursuant to the Equal Access to Justice Act ("EAJA"), 28 U.S.C. ยง 2412(d)(1)(A). The EAJA permits a court to award fees and costs to a prevailing party in a litigation against the United States or one of its agencies when the court finds that the government's position was not substantially justified. *fn1" The INS opposes petitioner's motion arguing that (1) EAJA fees are not available in habeas corpus proceedings, (2) the BIA's decision was substantially justified, (3) the government's Rule 59(e) motion was substantially justified, (4) the fee application is not supported by contemporaneous time records, and (5) the hourly rate requested is excessive (Item 25).

 DISCUSSION

 I. Awards of Attorneys' Fees in Habeas Corpus Proceedings

 The INS contends that EAJA fees are not available in habeas corpus proceedings (Item 25, pp. 4-6). Citing the Tenth Circuit's decision in Ewing v. Rodgers, 826 F.2d 967, 969 (10th Cir. 1987), the INS argues that because the EAJA does not provide a general definition of the term "civil action" and because the EAJA is a waiver of sovereign immunity and must therefore be construed strictly, Congress's failure to define the term "civil action" makes application of the statute ambiguous when traditional habeas corpus actions are involved (Item 25, p. 4). The INS notes that in Boudin v. Thomas, 732 F.2d 1107, 1112-14 (2d Cir. 1984), reh'g en banc denied, 737 F.2d 261 (1984), the Second Circuit held that habeas petitions are not "civil actions" under the EAJA, explaining that EAJA benefits are unnecessary for habeas corpus petitioners because they "are dedicated to vindicating individual rights . . . rather than refining rules and policy." 732 F.2d, at 1114. The court reasoned "that Congress either meant to exclude habeas petitions from the scope of section 2412 or overlooked the question." Id. The INS argues that because the instant case was initiated by a petition for a writ of habeas corpus, it is controlled by Boudin.

 Petitioner asserts that attorneys' fees have routinely been awarded in cases involving review of INS decisions (Item 27, p. 1). Petitioner argues that Boudin is not applicable to the present case because Boudin involved a prisoner's challenge to the conditions of confinement rather than a review of an agency's decision (Id., p. 2). Petitioner notes that a petition for habeas corpus is the statutorily mandated procedural vehicle to obtain judicial review (Id.). Petitioner cites several cases from this circuit and others where courts applied the EAJA to petitions challenging immigration orders (Id, pp. 2-3).

 Petitioner is correct that Boudin does not apply to the instant case and that attorneys' fees are available for habeas corpus proceedings requesting judicial review of INS decisions. As petitioner points out, in Petition of Hill, 775 F.2d 1037 (9th Cir. 1985), the Ninth Circuit held that an alien who successfully challenged an order of exclusion issued against him on the basis of his unsolicited admission that he was a homosexual was entitled to counsel fees as provided by the EAJA. The court explained that although the Second Circuit in Boudin had spoken broadly of habeas corpus proceedings, the Second Circuit was concerned with habeas corpus proceedings in the criminal context when it held that EAJA fees were not available. Petition of Hill, 775 F.2d at 1040. The Ninth Circuit noted that

 
the denial of attorneys' fees in Boudin was premised on the court's understanding of the dual purposes of the EAJA: to remove the financial disincentive for individuals and small businesses challenging or defending against government regulatory conduct where the cost of attorneys may be prohibitive, and to encourage challenges to improper government action as a means of helping to formulate better public policy. The Boudin court held that those interests were not served in the prisoner's habeas corpus proceedings in that case.

 Id. The court then looked at the substance of the remedy sought, rather than the label attached to the claim, and found that the petitioner's "claim was not merely the vindication of his own personal rights, but a challenge to a regulatory policy that had a sweeping effect on homosexual aliens seeking to enter the United States." Id., p. 1041. The court also noted that the petitioner, a nonresident alien, was (1) not eligible for government-provided counsel, (2) had little economic incentive to challenge the INS's action, and (3) had no custodial incentive to reverse the action. Id., p. 1041. The Ninth Circuit has reiterated its position that the EAJA applies to habeas corpus proceedings seeking review of INS decisions in Diaz-Magana v. Rogers, 81 F.3d 167 (9th Cir. 1996) (table; text in Westlaw at 1996 WL 131801, at *1). In Diaz-Magana, the court stated that "even the Second Circuit does not apply its Boudin decision to immigration cases." Id. (citing Sotelo-Aquije v. Slattery, 62 F.3d 54 (2d Cir. 1995)).

 The Second Circuit has not addressed the question of whether its Boudin decision applies to habeas corpus petitions challenging INS decisions. In Sotelo-Aquije, 62 F.3d at 54, the Second Circuit held that an alien who had brought a petition for a writ of habeas corpus to challenge the BIA's decision to deny the alien asylum was entitled to attorney's fees and costs under the EAJA. The court did not show any concern that the alien's successful challenge was brought by a habeas corpus petition, nor did it mention Boudin. The INS contends that because the Sotelo-Aquije court did not address Boudin. Sotelo-Aquije does not control this jurisdiction issue (Item 25, p. 5, n. 1). The INS correctly points out that the Supreme Court has held that "the existence of unaddressed jurisdictional defects has no precedential effect." Lewis v. Casey, 518 U.S. 343, 116 S. Ct. 2174, 2180 n. 2, 135 L. Ed. 2d 606 (1996) (citing Federal Election Comm'n v. NRA Political Victory Fund, 513 U.S. 88, 97, 130 L. Ed. 2d 439, 115 S. Ct. 537 (1994)).

 This court finds the Ninth Circuit's analysis in Petition of Hill and Diaz-Magana to be persuasive. The Boudin court expressly recognized that the EAJA was passed partly to encourage challenges of improper actions by government agencies, and that "an adjudication or civil action provides a concrete, adversarial test of Government regulation and thereby insures the legitimacy and the fairness of the law." Boudin, 732 F.2d 1107, 1114 (quoting H.R.Rep. No. 1418, 96th Cong., 1st. Sess. 10, reprinted in 1980 USCAAN 4984, 4988-89). A habeas petition brought by a prisoner challenging prison conditions does not achieve these goals. A habeas petition brought by an alien who has been denied entry into the United States through an agency regulation or an agency's interpretation and application of a regulation or other governing law most certainly achieves these goals. Petitioner's claim not only served to vindicate his personal right to enter the United States, it also clarified the correct legal standard for determining whether an alien's prior conviction was for a crime of moral turpitude, thereby affecting all aliens who have committed crimes in other countries and seek entry into the United States. As the Ninth Circuit explained in Petition ...


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