FOR PUBLICATION
UNITED STATES COURT OF APPEALS
FOR THE NINTH CIRCUIT
PIERRE NICHOLAS MALILIA, aka
David Fox,
No. 05-77397
Petitioner,
v. Agency No.
A029-554-456
ERIC H. HOLDER JR., Attorney
OPINION
General,
Respondent.
On Petition for Review of an Order of the
Board of Immigration Appeals
Argued and Submitted
October 6, 2010—San Francisco, California
Filed February 3, 2011
Before: Robert R. Beezer, Andrew J. Kleinfeld, and
Susan P. Graber, Circuit Judges.
Opinion by Judge Beezer
2135
MALILIA v. HOLDER 2139
COUNSEL
Thomas K. Ragland, Duane Morris LLP, Washington, D.C.,
for the petitioner.
Jesse M. Bless, Trial Attorney, Office of Immigration Litiga-
tion Civil Division, U.S. Department of Justice, Washington,
D.C., for the respondent.
OPINION
BEEZER, Circuit Judge:
Pierre Nicholas Malilia (“Malilia”) petitions for review of
two decisions by the Board of Immigration Appeals (“BIA”).
First, Malilia argues that a conviction for improper delivery
of a firearm is not a deportable firearms offense under 8
U.S.C. § 1227(a)(2)(C). Second, Malilia appeals the immigra-
tion judge’s (“IJ”) decision to deny Malilia’s request for a
continuance while his I-130 application was pending.
We dismiss Malilia’s first ground for appeal for lack of
jurisdiction, because a conviction for improper delivery of a
firearm is a deportable offense. However, we conclude that
the IJ abused his discretion in denying Malilia’s continuance
request, because the IJ failed to follow the BIA’s guidelines
when considering the request.
Accordingly, we dismiss in part, grant in part, and remand
to afford Malilia an opportunity to apply for adjustment of
status based on his now approved I-130.
2140 MALILIA v. HOLDER
I
Malilia is a native and citizen of Malta who was admitted
as a lawful permanent resident of the United States on July
22, 1991. On March 1, 1993, Malilia pleaded guilty to deliv-
ering a package containing firearms, in violation of 18 U.S.C.
§ 922(e). Malilia’s plea agreement stipulated the following
facts: (1) Malilia “knowingly and willfully delivered a crate
or package containing approximately 80 firearms” to the Sky
Harbor International Airport in Phoenix, Arizona; (2) Malilia
“marked the package as containing machine parts” and falsi-
fied a receipt; (3) Malilia “presented this crate or package to
the airline as machinery parts” to ship to Malta; (4) Malilia
intended to ship the package “to a person who was not
licensed as a firearms dealer, manufacturer, or importer”; and
(5) Malilia did not give TWA Airlines written notice that the
package contained firearms. Pursuant to Malilia’s plea
arrangement, the district judge sentenced Malilia to 12
months’ probation.
On December 30, 2002, the Immigration and Naturalization
Service1 issued Malilia a Notice to Appear, alleging that
Malilia was removable under 8 U.S.C. § 1227(a)(2)(C)
because of the firearms conviction. While removal proceed-
ings were pending, Malilia married Ms. Vilaykone Southa-
sarn, a United States citizen, who immediately filed an I-130
Adjustment of Status Application on Malilia’s behalf. Malilia
requested that the IJ grant Malilia a continuance to afford
USCIS the time to adjudicate the pending I-130 application.
On August 12, 2004, the IJ issued an oral judgment, ruling
that Malilia’s conviction was a removable offense and deny-
ing Malilia’s oral request for a continuance. The IJ provided
two reasons for denying the continuance. First, the IJ stated
1
The INS ceased to exist on March 1, 2003, and its functions were
transferred to U.S. Citizenship and Immigration Services (“USCIS”), part
of the newly formed Department of Homeland Security (“DHS”).
MALILIA v. HOLDER 2141
that Malilia’s marriage to a U.S. citizen was “subject to a pre-
sumption [that the marriage] was entered into for the purpose
of obtaining an immigration benefit.” Second, the IJ could not
“justify delaying [Malilia’s] removal proceeding for an unpre-
dictable period of time, certainly involving months, perhaps
involving years” waiting for USCIS to adjudicate the I-130.
Id.
Malilia appealed to the BIA, which issued an opinion
affirming the IJ. The BIA held that because “possession” is a
necessary element of “delivery,” Malilia’s conviction was a
removable offense. The BIA also agreed with the IJ that there
was a “presumption that the marriage was not entered into in
good faith.” Following the BIA’s decision, Malilia filed a
Petition for Review with this court. Shortly thereafter, USCIS
determined that Malilia’s marriage to Ms. Southasarn was
bona fide and approved the couple’s I-130 application.
II
[1] The parties dispute whether we have jurisdiction to
consider either of Malilia’s claims. When a petitioner’s con-
viction is a deportable firearms offense under 8 U.S.C.
§ 1227(a)(2)(C), this court does not have jurisdiction to con-
sider challenges to removal orders based on that conviction.
8 U.S.C. § 1252(a)(2)(C).2 In other words, an alien who is
convicted of a firearms offense covered by § 1227 is deport-
able and is not entitled to an appeal. Valerio-Ochoa v. INS,
241 F.3d 1092, 1094 (9th Cir. 2001). However, we still have
2
Section 1252(a)(2)(C) reads as follows:
Notwithstanding any other provision of law . . . no court shall
have jurisdiction to review any final order of removal against an
alien who is removable by reason of having committed a criminal
offense covered in section 1182(a)(2) or 1227(a)(2)(A)(iii), (B),
(C), or (D) of this title for which both predicate offenses are,
without regard to their date of commission, otherwise covered by
section 1227(a)(2)(A)(i) of this title.
2142 MALILIA v. HOLDER
jurisdiction to determine our own jurisdiction. Id. We also
have jurisdiction over questions of law. 8 U.S.C.
§ 1252(a)(2)(D).
Federal courts afford the BIA substantial deference when
the BIA interprets a statute that it is charged with administer-
ing. INS v. Cardoza-Fonseca, 480 U.S. 421, 446-48 (1987)
(citing Chevron U.S.A. Inc. v. Natural Res. Def. Council, Inc.,
467 U.S. 837, 843 (1984)). However, when reviewing a
removal decision, federal courts owe no deference to the
BIA’s interpretation of a criminal statute. Marmolejo-Campos
v. Holder, 558 F.3d 903, 907-08 (9th Cir.), cert. denied, 130
S.Ct. 1011 (2009). Where the BIA has determined that a par-
ticular criminal offense renders an alien removable, we
review that determination de novo.
The government is incorrect to assert that the BIA’s inter-
pretation of § 1227 merits deference. The BIA is not just
interpreting § 1227 when making the determination that deliv-
ery of firearms is a removable offense. To make that determi-
nation, the BIA must first interpret 18 U.S.C. § 922(e), a
criminal statute, and then apply § 1227 to this interpretation.
We review that initial interpretation of § 922(e) de novo, with
no deference to the BIA’s determination. INS v. Aguirre-
Aguirre, 526 U.S. 415, 425 (1999).
We review the IJ’s denial of a continuance for an abuse of
discretion. Karapetyan v. Mukasey, 543 F.3d 1118, 1121 (9th
Cir. 2008).
III
[2] Malilia pleaded guilty to knowingly delivering a fire-
arm without first providing written notice to the carrier. 18
U.S.C. § 922(e).3 At issue is whether Malilia’s firearms
3
Section 922(e) states in part:
MALILIA v. HOLDER 2143
offense renders him removable under 8 U.S.C. § 1227(a)(2)(C).4
Malilia argues that a conviction for improper delivery of a
firearm under 18 U.S.C. § 922(e) does not qualify as a predi-
cate firearms offense under § 1227 because the enumerated
list does not mention delivery. Based on that fact, Malilia
asserts that Congress did not intend to include “delivery” as
a qualifying offense. But the history of § 1227 belies this
claim. Congress intended the provision to apply broadly.
Before 1990 the provision only listed two generic categories
as bases for deportation: “possessing or carrying.” 8 U.S.C.A.
§ 1251(a)(14) (1990). During the early 1990s Congress
repeatedly expanded the list of deportable firearms offenses.
Congress’ first major revision added to the list of deportable
offenses “purchasing, selling, offering for sale, exchanging,
using, owning, possessing, or carrying” any firearm illegally.
Pub. L. No. 101-649, § 602(a)(2)(C) (1990). Four years later
Congress added inchoate offenses to the list. See Immigration
and Nationality Technical Corrections Act of 1994, Pub. L.
No. 103-406, § 203(b) (1994). Each revision stretched the
scope of deportable firearms offenses, closing gaps and
expanding § 1227’s reach.
It shall be unlawful for any person knowingly to deliver or cause
to be delivered to any common or contract carrier for transporta-
tion or shipment in interstate or foreign commerce . . . any pack-
age or other container in which there is any firearm or
ammunition without written notice to the carrier that such firearm
or ammunition is being transported or shipped . . . .
4
Section 1227(a)(2)(C) reads as follows:
Any alien who at any time after admission is convicted under any
law of purchasing, selling, offering for sale, exchanging, using,
owning, possessing, or carrying, or of attempting or conspiring to
purchase, sell, offer for sale, exchange, use, own, possess, or
carry, any weapon, part, or accessory which is a firearm or
destructive device . . . in violation of any law is deportable.
2144 MALILIA v. HOLDER
[3] As we have previously stated, § 1227’s
comprehensive list of gerunds captures all varieties
of conduct relating to firearms transactions. [Section
1227] includes inchoate as well as completed
offenses, enumerating not only the sale, use, owner-
ship, or possession of firearms, but also any attempt
or conspiracy to do so. Finally, [section 1227]
encompasses convictions “under any law” of engag-
ing or attempting to engage in such transactions.
This wide-ranging text evinces an expansive purpose
— to render deportable those aliens that commit fire-
arms offenses of any type.
Valerio-Ochoa, 241 F.3d at 1095 (quoting Hall v. INS, 167
F.3d 852, 855 (4th Cir. 1999)). For instance, § 1227 includes
the following phrases: “any alien,” “any time,” “under any
law,” and “in violation of any law.” 18 U.S.C.
§ 1227(a)(2)(C). This repetitive use of unqualified language
demonstrates Congress’ intent to embrace the panoply of fire-
arms offenses. Valerio-Ochoa, 241 F.3d at 1095. The Second
and Fourth Circuits both agree with this reading. Kuhali v.
Reno, 266 F.3d 93, 103 (2d Cir. 2001); Hall, 167 F.3d at 855.
[4] However, it is true that § 922 clearly regulates the
delivery of both firearms and ammunition. Because only the
improper delivery of firearms would constitute a removable
offense, a violation of § 922 is not categorically a removable
offense. For instance, improperly delivering ammunition
would not render an alien removable under § 1227. In circum-
stances in which the criminal statute is categorically over-
broad, we proceed to a modified categorical approach. In
addition to the statute of conviction, we consider “ ‘a narrow,
specified set of documents that are part of the record of con-
viction,’ ” to determine whether the defendant was convicted
of the necessary elements of the generic crime. Suazo Perez
v. Mukasey, 512 F.3d 1222, 1226 (9th Cir. 2008) (quoting
Tokatly v. Ashcroft, 371 F.3d 613, 620 (9th Cir. 2004)). These
MALILIA v. HOLDER 2145
documents include the indictment, the judgment of convic-
tion, the jury instructions, a signed guilty plea, and the tran-
script from the plea proceedings. Tokatly, 371 F.3d at 620.
[5] In particular, when determining whether a guilty plea
admits the necessary elements of the generic offense, a modi-
fied categorical inquiry is limited “to the terms of the charg-
ing document, the terms of a plea agreement or transcript of
colloquy between judge and defendant in which the factual
basis for the plea was confirmed by the defendant, or to some
comparable judicial record of this information.” Shepard v.
United States, 544 U.S. 13, 26 (2005). The issue here is not
whether every guilty plea under § 922 demonstrates (or
encompasses) exchange, possession, sale, or use of firearms,
but rather whether Malilia’s particular guilty plea constitutes
a violation of “any law” prohibiting exchange, possession,
sale, or use of firearms. The record of conviction demon-
strates that Malilia “knowingly and willfully delivered” 80
firearms in violation of 18 U.S.C. § 922(e).
[6] Malilia asserts that his conviction is not a removable
offense because § 922 criminalizes only improper delivery.
Essentially, Malilia argues that, because delivery is not pos-
session, a conviction for delivery is not a predicate offense
under § 1227. But to establish the elements of a § 922 viola-
tion, the government must prove that the defendant had actual
or constructive possession of the firearm. As the Second Cir-
cuit has commented, “the power to send or take a commodity
out of the country necessarily implies — because of the exer-
cise of dominion or control — at least constructive possession
of the commodity.” Kuhali, 266 F.3d at 105. Possession is a
necessary part of delivery. “[I]t would be incongruous to read
the statute to encompass the possession or carrying of fire-
arms when committed as crimes in their own right, but not
when committed as necessary elements of other crimes.” Id.
at 103.
Congress did not write the law so that an alien who unlaw-
fully possesses a firearm may be removed while an alien who
2146 MALILIA v. HOLDER
possesses a firearm and then unlawfully delivers that firearm
may not be removed.
The Supreme Court dealt with a similar issue in United
States v. Bass, 404 U.S. 336 (1971). In Bass, the Court con-
sidered a statute that imposed criminal sanctions on a person
who “receives, possesses, or transports in commerce or affect-
ing commerce . . . any firearm.” Id. at 337 (internal quotation
marks omitted). The question was whether a conviction for
possession alone would require further proof that the firearm
had been “in commerce or affecting commerce.” Id. at 339.
The Court said that the conviction would require further
proof, reasoning that “[s]ince virtually all transportations,
whether interstate or intrastate, involve an accompanying pos-
session or receipt, it is odd indeed to argue that on the one
hand the statute reaches all possessions and receipts, and on
the other hand outlaws only interstate transportations.” Id. at
340-41. The Bass Court concluded that establishing posses-
sion does not, without more, prove that a firearm traveled
interstate, but establishing that a firearm traveled interstate
necessarily requires some element of possession. See id. at
340-41, 350-51.
[7] In the same way that transportation in Bass included an
element of possession, Malilia’s delivery necessarily required
some form of possession, which means that Malilia’s convic-
tion renders him removable under 8 U.S.C. § 1227(a)(2)(C).
[8] We therefore dismiss Malilia’s first challenge for lack
of jurisdiction. Valerio-Ochoa, 241 F.3d at 1094. This, how-
ever, does not mean that we cannot consider Malilia’s sepa-
rate challenge that the IJ’s denial of Malilia’s request for a
continuance was based on an error of law. We retain jurisdic-
tion to review errors of law pursuant to 8 U.S.C.
§ 1252(a)(2)(D).
IV
[9] Malilia’s second claim is that the IJ abused his discre-
tion when the court denied Malilia’s request for a continu-
MALILIA v. HOLDER 2147
ance. Malilia had requested the continuance to afford USCIS
the opportunity to adjudicate an I-130 filed by Malilia’s wife.
Approval of an I-130 enables an alien in removal proceedings
to apply for adjustment of status to lawful permanent resident.
Even an alien who is removable for a firearms conviction is
eligible for adjustment of status if the alien presents an
approved I-130. See In re Rainford, 20 I. & N. Dec. 598, 602
(B.I.A. 1992).
The IJ denied Malilia’s request for a continuance for two
reasons. First, the IJ stated that Malilia’s marriage was subject
to a “presumption” that the marriage was entered into in bad
faith. Second, the IJ stated that the DHS approval process
could take years, and that the immigration court could not jus-
tify a long delay in the proceedings. The IJ’s first justification
is well-grounded in legislative history and precedent. The sec-
ond, however, constitutes reversible error.
[10] Malilia suggests that we distinguish between “burden
of proof” and “presumption.” However, a heightened burden
of proof creates a rebuttable presumption. In re Aurthur, 20
I. & N. Dec. 475 (B.I.A. 1992), modified on other ground by
In re Velarde, 23 I. & N. Dec. 253 (B.I.A. 2002). Malilia had
the burden of proof to show, through “clear and convincing
evidence,” that his marriage was not fraudulent. Therefore,
the IJ did not make an error of law in characterizing Malilia
as presumptively not entitled to an adjustment of status.
The legislative history supports this holding. Traditionally,
the Immigration and Nationality Act (“INA”) has granted spe-
cial rights to an alien who is married to a U.S. citizen or law-
ful permanent resident. In 1986, Congress enacted several
amendments to the INA in an effort to deter fraud by aliens
seeking to adjust their status based upon their marriage to a
United States citizen or lawful permanent resident. In re
Arthur, 20 I. & N. Dec. at 478. One such amendment pre-
cluded an alien from adjusting his status based on a marriage
entered into during removal proceedings unless the alien
2148 MALILIA v. HOLDER
resided outside the United States “for a 2-year period begin-
ning after the date of the marriage.” Immigration Marriage
Fraud Amendments of 1986, Pub. L. No. 99-639, § 5(a) (codi-
fied as amended at section 245(e) of the INA, 8 U.S.C.
§ 1255(e)(1)-(2) (2006)). The provision was not only easy to
administer, but was also very effective at screening out sus-
pect marriages, because every marriage entered into during
removal proceedings fell within its scope.
However, critics began to note that the provision’s exceed-
ingly broad applicability unnecessarily excluded from adjust-
ment aliens whose marriages were bona fide, “with obvious
resulting hardship to citizens and lawful permanent residents
of this country.” In re Velarde-Pacheco, 23 I. & N. at 258
(Holmes, Board Member, concurring). Congress responded
with additional amendments in 1990, including an exception
to the 2-year bar for those aliens who could establish “by
clear and convincing evidence . . . that the marriage was
entered into in good faith and . . . was not entered into for the
purpose of procuring the alien’s entry as an immigrant.”
Immigration Act of 1990, Pub. L. No. 101-649, § 702(a) (cod-
ified as amended at section 245(e)(3) of the INA, 8 U.S.C.
§ 1255(e)(3) (2006)). See also Melnitsenko v. Mukasey, 517
F.3d 42, 48-49 (2d Cir. 2008); Conteh v. Gonzales, 461 F.3d
45, 64-65 (1st Cir. 2006).
[11] Because Congress first enacted an absolute bar to
adjustment of status based on a marriage entered into during
removal proceedings, and then enacted an exception to this
bar with a heightened evidentiary burden to establish the bona
fides of the marriage, the BIA reasoned that “Congress rather
clearly created a presumption that marriages contracted after
the institution of exclusion or deportation proceedings are
fraudulent.” In re Arthur, 20 I. & N. at 478-479. Given this
legislative history, it appears that Congress’s intent in amend-
ing the marriage fraud provisions was to provide aliens who
marry during removal proceeds “one opportunity to present
clear and convincing evidence that their marriage is bona
MALILIA v. HOLDER 2149
fide.” In re Velarde-Pacheco, 23 I. & N. Dec. at 257. Absent
a showing of clear and convincing evidence, the marriage is
presumed fraudulent. In re Arthur, 20 I. & N. at 479.
[12] Though Malilia would have us characterize the
heightened burden of proof on the alien as something differ-
ent from a presumption, it is not. All a presumption does, if
it is rebuttable, as this one is, is to establish which side has the
burden of proof. In this case, the burden of proof is height-
ened by the “clear and convincing evidence” requirement.
Therefore, the IJ did not make an error of law in characteriz-
ing Malilia’s marriage as presumptively fraudulent.
[13] Second, Malilia’s continuance request was denied
partly because the IJ speculated that the approval process
could take months or even years. But delays in the USCIS
approval process are no reason to deny an otherwise reason-
able continuance request. As we have stated before, basing a
denial on such grounds is akin to “blaming a petitioner for an
administrative agency’s delay.” Ahmed v. Holder, 569 F.3d
1009, 1013 (9th Cir. 2009). Malilia should not have to bear
the ultimate cost for USCIS’s inefficiencies. If approval can
wait, then surely removal can also wait. There is no evidence
that Malilia was dangerous or that Malilia needed to be
removed quickly. In fact, the government waited nearly 10
years before serving Malilia with a Notice to Appear. In that
context, one continuance to afford USCIS the opportunity to
adjudicate a pending I-130 application is surely reasonable.
Although it came down subsequently, the BIA decision in
In re Hashmi informs us of the standards the agency has
approved for discretion in such a matter. 24 I. & N. 785
(B.I.A. 2009). The facts in In re Hashmi are similar to the
facts at issue here. In In re Hashmi the respondent was in
removal proceedings and had asked the IJ for a series of con-
tinuances to allow DHS to process a pending I-130 applica-
tion. Id. at 786. The IJ granted four continuances over a 13-
month period while USCIS considered the I-130. But the I-
2150 MALILIA v. HOLDER
130 adjudication process dragged on with numerous delays
because at certain points DHS did not have the file, and at
other points USCIS did not have the file. Id. Owing to these
delays, respondent sought a fifth continuance, which DHS did
not oppose. Id. Nevertheless, the IJ denied the request,
explaining “that he was expected to complete cases in a rea-
sonable period of time by meeting certain ‘case completion
goals’ set by the Department of Justice.” Id. The BIA
affirmed the IJ’s decision to deny the continuance.
The Third Circuit, however, reversed. Hashmi v. Att’y Gen.
of U.S., 531 F.3d 256 (3d Cir. 2008). The Third Circuit
pointed out that Hashmi “ha[d] been mired in a bureaucratic
morass caused by the government’s failure to ensure that nec-
essary information about his case ha[d] been available to both
those adjudicating his removal proceedings and those adjudi-
cating his I-130 petition.” Id. at 258. The court also noted that
a “ruling in favor of the government here would leave DHS
with no incentive to fix its procedures to avoid such a situa-
tion in the future and would allow the deportation of
similarly-situated individuals, who may well be entitled to an
adjustment of status, simply because [of agency delay].” Id.
at 261-62.
On remand, the BIA articulated five factors that an IJ
should consider when determining whether to continue pro-
ceedings to afford the respondent an opportunity to apply for
adjustment of status premised on a pending visa petition. The
factors are: “(1) the DHS response to the motion; (2) whether
the underlying visa petition is prima facie approvable; (3) the
respondent’s statutory eligibility for adjustment of status; (4)
whether the respondent’s application for adjustment [of sta-
tus] merits a favorable exercise of discretion; and (5) the rea-
son for the continuance and other procedural factors.” In re
Hashmi, 24 I. & N. Dec. at 790. These commonsense stan-
dards should be applied in this case.
[14] In In re Hashmi the BIA made clear that where DHS
does not oppose the continuance, “the proceedings ordinarily
MALILIA v. HOLDER 2151
should be continued by the Immigration Judge in the absence
of unusual, clearly identified, and supported reasons for not
doing so.” Id. at 791. Here, the IJ denied Malilia’s continu-
ance request, in part, because of agency delay, a reason that
is hardly unusual, given the routine delays involved in the
USCIS approval process. The BIA also emphasized that,
when determining the reasons for the continuance, “a critical
inquiry will revolve around which party is most responsible
for the delay in the proceedings.” Id. at 793. Much like the sit-
uation in In re Hashmi, the delays in adjudicating Malilia’s I-
130 stemmed primarily from USCIS. “Delay that is not attrib-
utable to the respondent augurs in favor of a continuance.” Id.
[15] Moreover, In re Hashmi also holds that
[f]actors relevant to determining whether a favorable
exercise of discretion is warranted include, but are
not limited to, the existence of family ties in the
United States; the length of the respondent’s resi-
dence in the United States; the hardship of traveling
abroad; and the respondent’s immigration history,
including any preconceived intent to immigrate at
the time of entering as a nonimmigrant.
Id. at 793. Malilia’s long residence in the United States and
his family ties in the United States both weighed substantially
in his favor.
[16] Additionally, USCIS has since determined that
Malilia’s marriage was not entered into in bad faith and has
approved the I-130. This means that the government now
acknowledges that Malilia’s marriage is bona fide, so Malilia
would have been allowed to apply for an adjustment of status
had the continuance been granted. See Ahmed v. Holder, 569
F.3d 1009, 1013 (9th Cir. 2009) (noting in a similar situation
that had a continuance been granted to allow the adjudication
of an ultimately successful I-140 “[the petitioner] could have
2152 MALILIA v. HOLDER
filed a Form I-485 to adjust his status to that of a permanent
resident”).
[17] It is generally an abuse of discretion to deny an unop-
posed request for a continuance where the delay is not attrib-
utable to the respondent and is needed solely so that an
agency ruling likely to be determinative, already timely
applied for, can be issued prior to removal.
[18] Because the IJ’s decision to deny Malilia a continu-
ance was an abuse of discretion, we reverse and remand to
afford Malilia the opportunity to apply for adjustment of sta-
tus based on the now-approved I-130 application.
DISMISSED in part, GRANTED in part, and
REMANDED to the immigration court. Costs on appeal
awarded to Petitioner.