In re Melgar, Interim Decision #4002

• Decision Date: 04 December 2020
• Docket Number: Interim Decision #4002
• Citation: 28 I&N Dec. 169
• Parties: Matter of Jesus A. MELGAR, Respondent
• Court: U.S. DOJ Board of Immigration Appeals

28 I&N Dec. 169

Matter of Jesus A. MELGAR, Respondent

Interim Decision #4002

U.S. Department of Justice Executive Office for Immigration Review Board of Immigration Appeals

December 4, 2020

(1) Counsel's acceptance of responsibility for error does not discharge the disciplinary authority complaint obligation under Matter of Lozada, 19 I&N Dec. 637 (BIA 1988), particularly where the ineffective assistance allegation is rendered by the same attorney against himself.

(2) A respondent seeking reopening on the basis of a claim of ineffective assistance of counsel must show a reasonable probability that, but for counsel's error, he would have prevailed on his claim.

FOR RESPONDENT: Gage C. Herbst, Esquire, Midvale, Utah

FOR THE DEPARTMENT OF HOMELAND SECURITY: Saida Ulle, Assistant Chief Counsel

BEFORE: Board Panel: GRANT, MULLANE, and RILEY, Appellate Immigration Judges

MULLANE, Appellate Immigration Judge:

This case was last before us on September 3, 2019, when we dismissed the respondent's appeal from an Immigration Judge's order of removal and denied his motion to remand to apply for adjustment of status on the basis of an approved visa petition filed by his United States citizen son. On December 2, 2019, the respondent filed a timely motion to reopen based on a claim of ineffective assistance of counsel. The Department of Homeland Security ("DHS") opposes the respondent's motion.¹ The respondent's motion to reopen will be denied.

The respondent is a native and citizen of El Salvador. In his motion, he asserts that his attorney provided ineffective assistance during the pendency of his appeal. In particular, he contends that his attorney, who is still hisattorney, did not ask him for information regarding his rehabilitation or other positive factors and therefore did not present sufficient evidence to establish that he was entitled to a remand to apply for adjustment of status on the basis of an approved visa petition filed by his United States citizen son. The respondent maintains that he has satisfied the procedural requirements that must be met before the Board will consider a motion to reopen based on ineffective assistance of counsel. The respondent also contends that he has established that he was prejudiced by his attorney's errors.

The respondent's ineffective assistance of counsel claim is different because the claim is made against his current counsel, who represented him before the Immigration Judge and on appeal to the Board, and continues to represent him in the motion to reopen. In Matter of Lozada, 19 I&N Dec. 637 (BIA 1988), we stated that a claim for ineffective assistance of counsel "should reflect whether a complaint has been filed with appropriate disciplinary authorities regarding such representation, and if not, why not." Matter of Lozada did not hold that any such explanation, however insufficient, would satisfy this requirement. Here respondent indicates that a complaint has not been filed with disciplinary authorities "[b]ecause counsel has taken responsibility for the error and the error is clear." But the obligation of the complaint cannot be so easily discharged, otherwise the purpose of the requirement is rendered inconsequential. This is particularly true in this context, where the ineffective assistance allegation is rendered by the same attorney against himself.² The claim here, if permitted, renders Matter of Lozada ineffectual.

The bar complaint requirement is designed to "highlight[] the standards which should be expected of attorneys who represent persons in immigration proceedings." Id. at 639; see also Matter of Rivera, 21 I&N Dec. 599, 604 (BIA 1996). Requiring notification of disciplinary authorities is important because this is the most effective way of informing disciplinary authorities of allegations of potential violations of ethical or legal responsibilities. While a single instance of malpractice may not be sufficient for disciplinary authorities to act, the notification requirement allows disciplinary authorities to assess whether there is a pattern of misconduct that should be addressed. Further, the bar complaint "also serves to protect against collusion between alien and counsel in which 'ineffective' assistance is tolerated, and goes unchallenged by an alien before disciplinary authorities, because it results in a benefit to the alien in that delay can be a desired end, in itself, in immigration proceedings." Matter of Rivera, 21 I&N Dec. at 604. There may be valid reasons for not submitting a bar complaint—such as death ofprior attorney or his disbarment—but respondent has not stated one here except for a self-serving purpose, which we will not accept. For these reasons, we conclude that respondent has not satisfied Matter of Lozada.

Even if we assume that the respondent's attorney provided ineffective assistance and that the respondent has satisfied the procedural requirements of Matter of Lozada, the respondent has not met his burden of showing that he was prejudiced by his attorney's errors. See Matter of Lozada, 19 I&N Dec. at 638. Specifically, the respondent has not met his burden of establishing a reasonable probability that, but for his attorney's mistakes, he would have obtained a remand to apply for adjustment of status. See, e.g., Harmon v. Sharp, 936 F.3d 1044, 1059 (10th Cir. 2019) (noting, in context of habeas proceeding, that, to show prejudice from ineffective assistance, a petitioner must demonstrate a reasonable probability that, but for counsel's unprofessional errors, the result of the proceeding would have been different) (citations omitted). The "reasonable probability" standard is appropriate because ineffective assistance of counsel only matters when there is prejudice. See Matter of Lozada, 19 I&N Dec. at 640. Reopening such cases is an extraordinary remedy that should not be invoked for attorney error that is non-prejudicial to the decision. A respondent who does not prevail on his claim may feel this was because his attorney was not good enough. Matter of Lozada remedies are not for those cases where a better attorney might have obtained a favorable result. Our concern is for respondents who have suffered significant harm and can show a reasonable probability that they would have prevailed on their claim. Thus a respondent does not have to show he definitely would have prevailed, but he needs to...