Foad Karim Farahi v. U.S. Attorney General

[DO NOT PUBLISH]
In the
United States Court of Appeals
For the Eleventh Circuit
____________________
No. 23-10339
Non-Argument Calendar
____________________
FOAD KARIM FARAHI,
Petitioner,
versus
U.S. ATTORNEY GENERAL,
Respondent.
____________________
Petition for Review of a Decision of the
Board of Immigration Appeals
Agency No. A096-087-879
____________________
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2 Opinion of the Court 23-10339
Before J ORDAN, L UCK , and TJOFLAT, Circuit Judges.
PER CURIAM:
Petitioner Foad Farahi seeks review of the Board of Immi-
gration Appeals’ (BIA) final order dismissing his appeal of the Im-
migration Judge’s (IJ) discretionary denial of his application for asy-
lum for two reasons. First, he argues that the BIA erred because it
failed to remand the case to the IJ for reconsideration in light of
8 C.F.R. § 1208.16(e) and Thamotar v. United States Attorney General,
1 F.4th 958 (11th Cir. 2021). Second, he argues that the BIA erred
because it failed to find that the IJ did not consider the totality of
the circumstances when deciding and rejecting his asylum applica-
tion. Farahi asserts that the IJ improperly weighed a Federal Bu-
reau of Investigation (FBI) agent’s memo and testimony, which de-
tailed his connections with individuals later convicted of terrorism
charges. For the reasons below, Farahi’s petition is dismissed in
part and denied in part.
I. Background
Around December 30, 1993, Farahi was admitted to the U.S.
on a nonimmigrant F-1 student visa and was allowed to stay until
February 28, 2001. In 2002, the Department of Homeland Security
(DHS) served Farahi with a notice to appear and charged him as
removable. The DHS alleged that Farahi was a Kuwaiti native and
an Iranian citizen and that he remained in the United States longer
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23-10339 Opinion of the Court 3
than permitted, in violation of Immigration and Nationality Act
(INA) § 237(a)(1)(B), 8 U.S.C. § 1227(a)(1)(B).1
A. Applications and Hearings
Farahi applied for asylum, statutory withholding of re-
moval, and withholding of removal under the Convention Against
Torture and Other Cruel, Inhuman or Degrading Treatment or
Punishment (CAT). In 2004, at an initial hearing before an IJ,
Farahi conceded the removal charge. Later, at a 2007 merits hear-
ing, Farahi withdrew his asylum application and sought voluntary
departure, which the IJ granted.
In 2009, after failing to voluntarily depart, Farahi filed an un-
opposed motion to reopen his asylum case based on changed con-
ditions in Iran. The next year, the BIA granted Farahi’s motion. In
2013, Farahi petitioned to adjust his status based on his marriage to
a U.S. citizen. The U.S. Citizenship and Immigration Services ap-
proved Farahi’s petition.
A year later, the DHS submitted a memo written by FBI Spe-
cial Agent Andrew Lenzen. Special Agent Lenzen—who had twice
interviewed Farahi in 2004—documented Farahi’s connections to
high-level terrorists, his failure to pay income taxes, and his re-
sponses to questions about his political views.
1 Under 8 U.S.C. § 1227(a)(1)(B), “[a]ny alien who is present in the United
States in violation of [the INA] or any other law of the United States . . . is
deportable.”
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4 Opinion of the Court 23-10339
In 2017, before his status adjustment hearing, Farahi’s wife
filed for divorce. At the hearing, Farahi, and his wife testified about
their marriage and stated that they were still living together. Also
at the hearing, Farahi sought to amend his adjustment of status ap-
plication to list his membership in associations he neglected to in-
clude on the form, including: the Muslim American Society, the
Syrian American Council, the Council on American Islamic Rela-
tions, and the Shamsuddin Islamic Center. He also reported that
he was arrested for driving with a suspended license three times.
Months after the hearing, the DHS moved to pretermit Farahi’s
status adjustment application based on his divorce, which the IJ
granted.
In 2019, Farahi again applied for asylum, statutory withhold-
ing of removal, and withholding of removal under CAT. He al-
leged that he was a Sunni Muslim who would be persecuted in Iran
because of his religion. He noted that he was unmarried and had
no children.
Later that year, Farahi testified before the IJ at a merits hear-
ing about his asylum application. Farahi explained that, as a Sunni
Muslim, he feared being deported to Iran because it was a predom-
inantly Shi’a Muslim country. He also stated that his loyalty to Iran
would be questioned because he lived in the United States for over
twenty-five years. Farahi noted that he had two master’s degrees,
a bachelor’s degree, and an associate’s degree—all from American
universities. As for work, he said that he was an imam at the
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23-10339 Opinion of the Court 5
Shamsuddin Islamic Center and that he sold and produced personal
care products.
Also during the merits hearing, Jack Lieberman—a Jewish
community leader—testified on Farahi’s behalf. Lieberman stated
that Farahi always worked to promote understanding and compro-
mise between Jews and Muslims at Jewish-Arab Dialogue Associa-
tion meetings.
The Government presented testimony from Special Agent
Lenzen, who reiterated information from his memo. Among other
things, Special Agent Lenzen testified that, in 2003, an FBI source
identified Farahi as a recruiter for the Egyptian Muslim Brother-
hood. At that time, the Egyptian Muslim Brotherhood was con-
nected to Khaled Sheikh Mohamed and other known Al Qaeda
members. He also testified that Farahi was linked to multiple con-
victed or indicted terrorists, including Adnan Shukrijumah,2 Jose
2 Shukrijumah, known as “the Elvis of Al Qaeda” was listed on the FBI’s most
wanted list in the early 2000’s. In July 2010, he was indicted for his alleged role
in a terrorist plot to attack targets in the United States and United Kingdom.
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6 Opinion of the Court 23-10339
Padilla,3 Mohammed Youssef,4 and Adham Hassoun.5 Special
Agent Lenzen also noted Farahi’s support for charities that fi-
nanced terrorism, such as the Holy Land Foundation, the Global
Relief Foundation, and Kindhearts International.6
B. The IJ’s Decision
After the merits hearing, the IJ denied Farahi’s application
for asylum, statutory withholding of removal as to Kuwait, and
withholding of removal under CAT. But the IJ granted statutory
withholding of removal as to Iran. The IJ found Farahi’s testimony
conflicted with his asylum application. Among other inconsisten-
cies, the IJ noted that Farahi testified that he had resigned from an
Islamic center in 2008, but Farahi’s asylum application showed that
he was still employed there. The IJ also highlighted issues with
3 Padilla was convicted of conspiring to murder, kidnap, or maim persons in a
foreign country, in violation of 18 U.S.C. § 956(a)(1); conspiring to provide
material support for terrorism, in violation of 18 U.S.C. § 372; and providing
material support to terrorists, in violation of 18 U.S.C. § 2339A(a). See United
States v. Jayyousi, 657 F.3d 1085, 1091 (11th Cir. 2011). The charged conduct
occurred between October 1993 and November 1, 2001. Id.
4 A federal grand jury indicted Youssef under the same charges as Padilla. Id.
Youssef was not arrested in the United States; instead, he was arrested, con-
victed, and sentenced in Egypt for other terrorist activity.
5 Hassoun was also convicted under the same charges as Padilla. Id. Per
Farahi, Hassoun was his father-in-law’s cousin.
6 The Holy Land and Global Relief Foundations were identified as Specially
Designated Global Terrorists under the authority of Executive Order 13,224.
The Treasury Department froze Kindhearts’ assets under the same executive
order when it learned that Kindhearts had raised money for Hamas.
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23-10339 Opinion of the Court 7
Farahi’s depiction of his marriage. The IJ explained that Farahi had
“‘delayed proceedings because he failed to disclose his separation
from [his wife] until he was confronted with evidence and ques-
tioned on cross examination’ during the merits hearing on his ad-
justment of status application.” The IJ concluded that although he
had submitted corroborating evidence and testimony from several
witnesses, that evidence failed to rehabilitate Farahi’s credibility be-
cause it did not adequately address the inconsistencies and implau-
sibility of his testimony.
As to the merits of Farahi’s applications, the IJ denied
Farahi’s asylum application because it was untimely under
8 U.S.C. § 1158(a)(2)(B).7 The IJ found that Farahi was admitted to
the United States in 1993, but did not apply for asylum relief until
August 29, 2002. The IJ determined that Farahi “established ex-
traordinary circumstances because [he] maintained lawful nonim-
migrant status in the United States until February 28, 2001, when
his F-1 student visa lapsed.” Yet, the IJ concluded that Farahi
7 Under 8 U.S.C. § 1158(a)(2)(B), an asylum applicant must file for relief
“within 1 year” of the applicant’s arrival in the United States. See also
8 C.F.R. § 1208.4(a)(2)(ii) (“The 1-year period shall be calculated from the date
of the alien’s last arrival in the United States or April 1, 1997, whichever is
later.”). The one-year deadline does not apply if the applicant “demonstrates
to the satisfaction of the Attorney General either the existence of changed cir-
cumstances which materially affect the applicant’s eligibility for asylum or ex-
traordinary circumstances relating to the delay in filing an application within
the [one-year] period.” 8 U.S.C. § 1158(a)(2)(D).
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8 Opinion of the Court 23-10339
waited an unreasonable amount of time to file his asylum applica-
tion after his F-1 visa lapsed.
Alternatively, the IJ considered whether Farahi merited a fa-
vorable exercise of discretion. The IJ first recognized the positive
factors that weighed in favor of Farahi’s application. The IJ noted
Farahi’s evidence of his ties to the community and his efforts to
accomplish peace by participating in organizations focused on
unity, dialogue, and compromise. The IJ also outlined the negative
factors weighing against granting asylum. The IJ noted that Farahi
had: (1) no children and was unmarried, (2) no family ties in the
United States, (3) no business ties to the United States, (4) a crimi-
nal record, (5) several connections to terrorists and terrorism or-
ganizations, and (6) failed to file federal tax returns. The IJ found
that the negative factors outweighed the positive ones and exer-
cised her discretion to deny Farahi’s asylum application.
The IJ then discussed Farahi’s withholding of removal appli-
cation. The IJ granted statutory withholding of removal as to Iran.
The IJ found that Farahi was not subject to any statutory bars and
that there was sufficient evidence to support that he was a Sunni
Muslim who faced a future threat of persecution based on his reli-
gion and political opinions if he was deported to Iran. But the IJ
denied Farahi’s withholding of removal claim related to Kuwait.
The IJ determined that Farahi provided no evidence showing that
he had a fear of returning to Kuwait based on either past or future
threats.
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23-10339 Opinion of the Court 9
Last, the IJ discussed Farahi’s application for CAT relief. The
IJ denied Farahi’s application for CAT relief because she found that
he “failed to demonstrate that it [was] more likely than not that he
w[ould] be tortured in Kuwait.” Though Farahi testified that he
had endured past harm in Kuwait, the IJ explained that the court
had found Farahi’s testimony not credible. Because he lacked cred-
ibility, the IJ explained that Farahi “would have to provide addi-
tional evidence” but failed to do so. The IJ further rejected the pos-
sibility that “Kuwaiti government officials would acquiesce to any
future abuse or threats against” Farahi based on a U.S. State De-
partment report, which noted efforts taken by the Kuwaiti govern-
ment to prevent such threats and abuse.
C. The BIA’s Decision
Farahi appealed to the BIA. He argued that the IJ failed to
adequately weigh his history in the United States against his prior
convictions for driving with a suspended license, his failure to file
tax returns, and his innocent interactions with individuals con-
victed of terrorism. He asserted that a grant of withholding of re-
moval and a denial of asylum as a matter of discretion requires
mandatory reconsideration in light of 8 C.F.R. § 1208.16(e) and
Thamotar.8 He argued that this inquiry “is not limited to
8 A former version of § 1208.16(e) explains when “[r]econsideration of discre-
tionary denial of asylum” is required. It states:
In the event that an applicant is denied asylum solely in the
exercise of discretion, and the applicant is subsequently
granted withholding of deportation or removal under this sec-
tion, thereby effectively precluding admission of the
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10 Opinion of the Court 23-10339
reunification with family” and must include an evaluation of the
applicant’s inability to “apply for permanent residency in the
United States, travel abroad freely, or petition for his family to join
him as derivatives.” Farahi asked the BIA to undertake de novo
review of the reconsideration or remand the case for further fact-
finding on this issue. He also argued that he was not a Kuwaiti
national, and that he forfeited his right to reside in Kuwait when he
left without a temporary resident status.
The BIA affirmed the IJ’s decision and dismissed Farahi’s ap-
peal. The BIA adopted the IJ’s reasoning except the IJ’s conclusion
about the one-year bar, which the BIA declined to reach. Rather,
the BIA agreed with the IJ’s discretionary decision that Farahi had
not established extraordinary circumstances relating to the delay in
filing his application. The BIA further found that there were no
applicant’s spouse or minor children following to join him or
her, the denial of asylum shall be reconsidered. Factors to be
considered will include the reasons for the denial and reasona-
ble alternatives available to the applicant such as reunification
with his or her spouse or minor children in a third country.
8 C.F.R. § 1208.16(e) (2020).
On November 20, 2020, the Department of Justice removed and reserved
8 C.F.R. § 1208.16(e). See Procedures for Asylum and Bars to Asylum Eligibil-
ity, 85 Fed. Reg. 67202, 67202 (Oct. 21, 2020). Still, it is undisputed that
§ 1208.16(e) is still in effect here. “[A]dministrative rules will not be construed
as having retroactive effect unless their language requires this result.” Bowen
v. Georgetown Univ. Hosp., 488 U.S. 204, 208 (1988). And nothing in the final
rule removing § 1208.16(e) suggests a retroactive effect.
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23-10339 Opinion of the Court 11
changed circumstances in Kuwait that materially affected Farahi’s
application.
The BIA rejected Farahi’s argument that the IJ erroneously
weighed the positive and negative factors affecting his application.
The BIA also concluded that mandatory reconsideration under
§ 1298.16(e) and Thamotar was not required. It reasoned that, un-
like the respondent in Thamotar, Farahi made no claim that the dis-
cretionary denial of asylum affected his ability to be reunited with
any spouse or minor child who would be effectively precluded
from admission to the U.S. And unlike in Thamotar, there were no
outstanding factual questions requiring remand. The BIA there-
fore determined that 8 C.F.R. § 1208.16(e) was inapplicable and
that remand for reconsideration of the discretionary denial of asy-
lum was neither mandatory nor merited.
Last, the BIA reconsidered the discretionary denial under
8 C.F.R. § 1208.16(e) itself—as requested by Farahi. Still, the BIA
came to the same conclusion as the IJ. It noted that Farahi failed to
dispute the IJ’s credibility finding. And, “after considering the to-
tality of the circumstances,” it found that “the balancing conducted
by the [IJ was] correct and the denial of asylum [was] warranted.”
Farahi timely appealed.
II. Legal Standards
A few legal standards govern our review. First, “[w]e review
only the BIA’s decision, except where the BIA expressly adopts or
explicitly agrees with the [IJ’s] opinion.” Thamotar, 1 F.4th at 969.
“In such cases, we review the [IJ’s] opinion to the extent the BIA
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12 Opinion of the Court 23-10339
found that the [IJ’s] reasons were supported by the record, and we
review the BIA’s decision with regard to those matters on which it
rendered its own opinion and reasoning.” Id.
Second, “[w]e review the BIA and [IJ’s] legal conclusions de
novo.” Id. And “[w]e review factual findings under the substantial
evidence test.” Id. Under the substantial evidence test, we must
“affirm the agency’s factual findings so long as they are ‘supported
by reasonable, substantial, and probative evidence on the record
considered as a whole.’” Id. (quoting Lingeswaran v. U.S. Att’y Gen.,
969 F.3d 1278, 1286 (11th Cir. 2020)). “We view the record evi-
dence in the light most favorable to the agency’s decision and draw
all reasonable inferences in its favor.” Id. Thus, “[w]e will reverse
‘factual findings only if the record compels reversal, and the mere
fact that the record may support a contrary conclusion is insuffi-
cient to justify reversal.’” Jathursan v. U.S. Att’y Gen., 17 F.4th 1365,
1372 (11th Cir. 2021) (quoting Lopez v. U.S. Att’y Gen., 914 F.3d
1292, 1297 (11th Cir. 2019)).
Last, “the standard of review for a discretionary denial of
asylum is set out in 8 U.S.C. § 1252(b)(4)(D), which provides that a
discretionary decision granting or denying asylum ‘shall be conclu-
sive unless manifestly contrary to law and an abuse of discretion.’”
Thamotar, 1 F.4th at 969 (quoting 8 U.S.C. § 1252(b)(4)(D)).
III. Discussion
Farahi argues that the BIA erred for two reasons: (1) it failed
to remand the case to the IJ for reconsideration as required by
§ 1208.16(e) and Thamotar, and (2) it failed to find clear error in the
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23-10339 Opinion of the Court 13
IJ’s discretionary denial of asylum. We review and reject each ar-
gument in turn.
A. Remand for Reconsideration
Farahi first argues that the BIA erred because remand for re-
consideration under § 1208.16(e) was mandatory. Relying on
Thamotar, Farahi contends that “when an applicant is denied asy-
lum in the exercise of discretion but granted withholding of re-
moval and the [IJ] fails to reconsider its discretionary denial of asy-
lum under 8 C.F.R. § 1208.16(e), the BIA must remand for the [IJ]
to conduct this required reconsideration.” 1 F.4th at 974. Farahi
adds that the BIA erroneously and arbitrarily decided that the lack
of family unification did not obligate it to remand to the IJ.
The Government argues that we should affirm the BIA’s de-
cision for two reasons. First, the Government contends that we
should reject Farahi’s argument because he did not exhaust his ad-
ministrative remedies. The Government notes that Farahi did not
argue that the BIA was required to remand the case to the IJ for
reconsideration. Rather, Farahi gave the BIA the choice to either
undertake de novo review or remand the case. Second, the Gov-
ernment asserts that Farahi’s argument is meritless. According to
the Government, both § 1208.16(e) and Thamotar deal with family
reunification. But Farahi has neither a spouse nor minor children
living abroad.
We need not dive into the merits of Farahi’s mandatory re-
mand argument because he failed to exhaust his administrative
remedies by not making this argument to the BIA. Under
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14 Opinion of the Court 23-10339
8 U.S.C. § 1252(d)(1), we may review a final order of removal only
if the applicant “has exhausted all administrative remedies available
to [them] as of right.” “Requiring exhaustion allows the BIA to
consider the niceties and contours of the relevant arguments,
thereby ‘full[y] consider[ing]’ the petitioner’s claims and ‘com-
pil[ing] a record which is adequate for judicial review.’”
Amaya-Artunduaga v. U.S. Att’y Gen., 463 F.3d 1247, 1250 (11th Cir.
2006) (alterations in original) (quoting Dokic v. I.N.S., 899 F.2d 530,
532 (6th Cir. 1990) (per curiam)). Although exhaustion under
§ 1252(d)(1) is not jurisdictional, it “remains a ‘claim-processing
rule.’” Kemokai v. U.S. Att’y Gen., 83 F.4th 886, 891 (11th Cir. 2023)
(quoting Santos-Zacaria v. Garland, 598 U.S. 411, 417 (2023)). “And
such a rule is generally applied where, as here, it has been asserted
by a party.” Id.; see also Fort Bend Cnty. v. Davis, 139 S. Ct. 1843, 1849
(2019).
Farahi did not argue that the BIA was required to remand
the case to the IJ for reconsideration. As the Government notes,
Farahi argued that the “Board must undertake a de novo review of
the reconsideration or remand the case for further fact finding on
this issue.” (second emphasis added). To be sure, “exhaustion ‘is
not a stringent requirement’ and is satisfied if the petitioner ‘previ-
ously argued the “core issue now on appeal” before the BIA.’” Kem-
okai, 83 F.4th at 891 (quoting Indrawati v. U.S. Att’y Gen., 779 F.3d
1284, 1297 (11th Cir. 2015)). By presenting a choice to the BIA be-
tween de novo review or remand, Farahi argued that remand was
not mandatory. We therefore cannot say that Farahi argued the
“core issue now on appeal.” To the extent that Farahi seeks to raise
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23-10339 Opinion of the Court 15
a new, unexhausted discrete argument on appeal, that part of his
petition is dismissed. See 8 U.S.C. § 1252(d)(1).
B. Discretionary Denial of Asylum
Farahi’s second argument amounts to an abuse-of-discretion
argument. He contends that the IJ failed to consider the totality of
the circumstances as required by Matter of Pula, 19 I. & N. Dec. 467
(BIA 1987), and that positive equities favor granting him asylum.
As to those positive equities, Farahi notes his degrees, his service as
an imam, his personal care products business, Lieberman’s testi-
mony, and his lack of arrest or convictions—aside from his 2003
conviction for driving with a suspended license.
Farahi also faults the BIA because it failed to find that the IJ
afforded improper weight to the FBI memo. Farahi suggests that
the IJ mischaracterized his contacts with convicted terrorists. He
adds that the IJ should not have afforded “substantial weight” to
the FBI memo because: (1) it was prepared three years after Agent
Lenzen interviewed Farahi; (2) it was prepared for the purpose of a
DHS enforcement action, and not in the regular course of business;
and (3) the contents of the memo contain double and triple hear-
say. And citing Matter of Arreguin De Rodriguez, 21 I. & N. Dec. 38
(BIA 1995), and Garces v. United States Attorney General,
611 F.3d 1337, 1350 (11th Cir. 2010), he suggests that less weight
should be afforded the memo. We disagree.
“[T]he agency’s decision to grant or deny asylum is discre-
tionary. The Attorney General has discretion to grant asylum to
any noncitizen who meets the INA’s definition of a ‘refugee.’”
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16 Opinion of the Court 23-10339
Thamotar, 1 F.4th at 970 (citation omitted) (quoting
8 U.S.C. § 1158(b)(1)(A)). Under the INA, a refugee is
any person who is outside any country of such per-
son’s nationality . . . and who is unable or unwilling
to return to, and is unable or unwilling to avail him-
self or herself of the protection of, that country be-
cause of persecution or a well-founded fear of perse-
cution on account of race, religion, nationality, mem-
bership in a particular social group, or political opin-
ion.
8 U.S.C. § 1101(a)(42)(A).
Although the BIA’s decision to grant asylum is discretionary,
“this discretion is not unlimited.” Thamotar, 1 F.4th at 970. “[T]he
BIA has stated that once an applicant has established eligibility, the
discretionary decision to grant asylum must be based on the ‘total-
ity of the circumstances,’ which involves balancing adverse factors
against favorable ones.” Id. (quoting Matter of Pula, 19 I. & N. Dec.
at 473). Those factors—among others—include, “whether the
noncitizen passed through other countries before arriving in the
United States, whether orderly refugee procedures were available
to him in any country he passed through, whether he engaged in
fraud, and whether general humanitarian considerations favor
granting asylum, such as age or poor health.” Id. at 971.
Neither the IJ nor the BIA abused their discretion. Against
the positive factors Farahi now stresses, the IJ noted several nega-
tive factors. The IJ explained that Farahi: (1) was relatively young,
(2) in good health, (3) failed to show any family ties to the United
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23-10339 Opinion of the Court 17
States, (4) “presented no evidence that he would be subject to hard-
ship unrelated to his claim, if he [was] removed,” and (5) had a
criminal record for driving with a suspended license. None of these
factors were impermissible for the IJ to consider. See In re H-,
21 I. & N. Dec. 337, 347–48 (BIA 1996) (explaining that BIA case
law recognizes that an applicant’s “age, health, or family ties,
should also be considered in the exercise of discretion”); Matter of
Pula, 19 I. & N. Dec. at 474 (“[T]he danger of persecution should
generally outweigh all but the most egregious of adverse factors.”);
Matter of M-L-A-, 26 I. & N. Dec. 360, 363 (BIA 2014) (noting an ap-
plicant’s “absence of any criminal record”); see also Thamotar,
1 F.4th at 971 (“These precedential agency decisions ‘are binding
on . . . immigration judges’ . . . .” (first omission in original) (quot-
ing 8 C.F.R. § 1003.1(g)(1))).
What’s more, as the IJ noted, the FBI memo contained other
negative factors that weighed against granting Farahi asylum. The
FBI memo stated that Farahi “had numerous connections to con-
victed terrorists, who provided material support to other terrorists
or otherwise plotted against the United States.” And it reported
that Farahi had never filed federal income tax returns—at the time
of the memo.9
9 Farahi admits that “some of [his] tax returns for the prior fifteen-plus years
were missing.” Failure to pay income taxes is another factor the BIA has used
to deny discretionary asylum. See Matter of A-H-, 23 I. & N. Dec. 774, 783 (BIA
2005) (denying asylum, in part, because the applicant failed to pay taxes).
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18 Opinion of the Court 23-10339
Farahi makes much of the IJ’s reliance on the FBI memo, and
her finding that Farahi “declined to be a [confidential informant]
despite his privileged position to observe suspicious behavior, and
considering the opportunities he had because of his many connec-
tions to convicted terrorists and his position as Imam in a mosque
frequented by some of them.” Even without the FBI memo, the
negative equities here could have supported the IJ’s decision and
the BIA’s affirmance. The addition of the memo reinforces the IJ’s
decision and the BIA’s affirmance. See 8 U.S.C. § 1158(b)(2)(A)(v)
(noting that an applicant is ineligible for asylum if he or she pro-
vided support to a terrorist organization); Matter of A-H-, 23 I. & N.
Dec. 774, 780 (BIA 2005) (denying asylum based on the applicant’s
ties to terrorist groups).
Still, it was not error for the IJ to rely on the FBI memo.
Contrary to Farahi’s assertions, nothing in Matter of Arreguin De Ro-
driguez and Garces makes the IJ’s reliance on the FBI memo im-
proper. Unlike the authors of the police reports in those cases, the
author of the FBI memo here—Special Agent Lenzen—testified
and was cross-examined. Much of Special Agent Lenzen’s testi-
mony was corroborated by Farahi himself. For example, Farahi
admitted that he taught and employed Padilla and that he knew
Shukrijumah, Youssef, and Hassoun. Farahi also admitted that he
declined to be a confidential informant and that he collected money
for the Holy Land Foundation. He also admitted that he attended
part of Padilla’s, Youssef’s, and Hassoun’s criminal trials.
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23-10339 Opinion of the Court 19
As to the IJ’s supposed mischaracterization of Farahi’s con-
nections to convicted terrorists, Farahi misses the IJ’s broader
point. That is, despite his connections and position, he was unwill-
ing to help the FBI investigate and stop terrorism. That finding is
supported by substantial evidence.
Consider Farahi’s connection to Shukrijumah. Farahi and
Shukrijumah attended the same mosque, at least for a few
months.10 And when Farahi became an imam at the mosque, he
volunteered to drive Shukrijumah’s father. According to Special
Agent Lenzen, a source informed him that Farahi may have pro-
vided Shukrijumah’s father status reports about his son. It is true
that Shukrijumah was not a convicted terrorist, but he was later
indicted and put on the FBI’s most wanted list.
Or consider Farahi’s connections to Padilla, Youssef, and
Hassoun. Farahi taught, housed, and employed Padilla. Farahi and
Youssef also attended the same mosque and taught classes to-
gether. Farahi attended the same mosque as Hassoun and married
Hassoun’s relative. Farahi may not have been an imam at the time,
but he admits that he knew these persons and that he attended part
of their criminal trials—where they were ultimately convicted on
terrorism-related charges. So although the IJ’s wording was
10 It is unclear whether Farahi was an imam during this time. Farahi’s brief
explains that “[i]n December 2000, [he] became a temporary then permanent
imam.” But Farahi testified: “the last time I remember seeing [Shukrijumah]
that’s in February 2001, and I wasn’t even an Imam at that time because I, I
became an Imam April 2001.”
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20 Opinion of the Court 23-10339
imprecise, her broader point holds true: Farahi declined to help the
FBI despite his connections to people later convicted of terrorism.
Even if “a discretionary denial is ‘exceedingly rare[]’” in
these circumstances, the question before us is whether the BIA
abused its discretion. Thamotar, 1 F.4th at 971 (quoting Sathanrasa
v. Att’y Gen. United States, 968 F.3d 285, 296 (3d Cir. 2020)). It did
not. The IJ’s decision to deny Farahi’s asylum application and the
BIA’s decision to affirm were supported by substantial evidence.
And considering the evidence in the light most favorable to the
agency’s decision, Farahi fails to show that he is entitled to asylum
given the negative equities that weighed against him. See id. at 970;
Diallo, 596 F.3d at 1332.
IV. Conclusion
We therefore dismiss Farahi’s petition as it pertains to his
argument that the BIA was required to remand his case for recon-
sideration under 8 C.F.R. § 1208.16(e). And we deny his petition as
it relates to the IJ’s discretionary denial of his asylum application
and the BIA’s affirmance of the IJ’s decision.
PETITION DISMISSED IN PART AND DENIED IN
PART.
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