In my prior
post about the hidden gems in Cone v. Bell, one of those gems that I discovered was that the Supreme Court seems to have settled the de novo vs. deference question that I had discussed in detail in three prior posts (
here,
here and
here).
If you are unfamiliar with those prior posts, the question was, in the situations where a federal claim has been fairly presented to the state courts but those courts did not decide the issue on the merits, do the federal courts need to analyze the claim under the deferential standard of review or can the federal court review the claim de novo without any deference?
This issue appeared to be front and center in the recent decision in Mirzayance. My reading (and apparently everybody else's on the internet) was that the Court punted on this question, deciding that the claim would fail under either standard.
And then Cone v. Bell comes along, and without any fanfare, quietly settles the issue. See for yourself in this quote:
Because the Tennessee courts did not reach the merits of Cone's Brady claim, federal habeas review is not subject to the deferential standard that applies under AEDPA to “any claim that was adjudicated on the merits in State court proceedings.” 28 U.S.C. § 2254(d). Instead, the claim is reviewed de novo. See, e.g., Rompilla v. Beard, 545 U.S. 374, 390, 125 S.Ct. 2456, 162 L.Ed.2d 360 (2005) ( de novo review where state courts did not reach prejudice prong under Strickland v. Washington, 466 U.S. 668, 104 S.Ct. 2052, 80 L.Ed.2d 674 (1984)); Wiggins v. Smith, 539 U.S. 510, 534, 123 S.Ct. 2527, 156 L.Ed.2d 471 (2003) (same).
Cone v. Bell, __ US __, 129 S.Ct. 1769, 1784 (April 28, 2009).
So not only does this question seem to have been definitively answered, according to Justice Stevens, it had been answered in two prior cases -- Rompilla and Wiggins.
But looking at those cases, that's not really true. In those cases, the state courts did address the merits of the federal claim -- ineffective assistance of counsel -- but only the first prong, deficient performance, but not the prejudice prong.
For example, in Wiggins, the Court did not really say that a de novo standard covers the situations where the state courts did not address an entire issue. All that the court stated was this:
In assessing prejudice, we reweigh the evidence in aggravation against the
totality of available mitigating evidence. In this case, our review is not
circumscribed by a state court conclusion with respect to prejudice, as neither
of the state courts below reached this prong of the Strickland analysis.
Wiggins, 539 U.S. at 534. So, technically, Wiggins does not stand for the broad proposition set out in Cone.
Rompilla goes a little bit further, but does not completely support what Stevens says it does. Here is what it says:
Because the state courts found the representation adequate, they never reached the issue of prejudice, App. 265, 272-273, and so we examine this element of the Strickland claim de novo, Wiggins v. Smith, 539 U.S., at 534, 123 S.Ct. 2527 . . . .
Rompilla, 545 US at 390. So it also does not specifically say that entire claims not adjudicated on the merits in state court do not fall under the deferential standard of review.
At most, these cases provide that, where a state court does address the merits of a federal claim, but does not reach all of the relevant issues, the Court will review those unreviewed parts of the claim de novo.
Certainly, these cases lay the groundwork for what Stevens says in Cone. The Court is really only taking it one step further in Cone. But the Court is taking that extra step and it did not even acknowledge it. And this extra step is pretty big news. Well, maybe not so much in the Second Circuit, which had already said that unadjudicated claims are reviewed de novo. But still a big deal in habeasland overall.
So what about Mirzayance? I re-read it as well as the cert. petitions and the briefs. And I now see that I misread the debate in that case entirely. The debate was not over whether deference or de novo should apply to unadjudicated claims. It kind of appeared that way on the surface since the Ninth Circuit had addressed the claim de novo and the State had argued that reviewing the claim de novo was improper. But the State's argument was not that de novo review in general was improper, but only that it was improper in that case because the Ninth Circuit had erroneously concluded that the state courts had not adjudicated the claim on the merits. That is entirely different.
In fact, in footnote 2, Justice Thomas stated that petitioner had pretty much dropped the whole deference vs. de novo issue entirely (and had adopted a sliding scale approach). He added:
[B]ecause Mirzayance has not argued that § 2254(d) is entirely inapplicable to his claim or that the state court failed to reach an adjudication on the merits, we initially evaluate his claim through the deferential lens of § 2254(d).
Knowles v. Mirzayance, __ U.S. __, 129 S. Ct. 1411, 1418 n.2 (March 24, 2009).
But what's interesting is that nowhere in the decision does Thomas imply that a de novo review would be inappropriate. As that quote from the footnote shows, he seems to be suggesting that if Mirzayance had argued that the state court had failed to reach an adjudication on the merits, there would be a question as to whether section 2254(d) would apply.
And then, later on in the opinion, Thomas does engage in a de novo review and frames it like this: "Even if Mirzayance's ineffective-assistance-of-counsel claim were eligible for
de novo review, it would still fail." Mirzayance, 129 S.Ct. at 1420. So Thomas appears to be saying here that some claims are indeed eligible for de novo review! I really misread that. I mean, it would be different if he had said, "assuming arguendo that the federal courts can review this claim de novo . . . ." But he didn't phrase it like that. So even in Mirzayance, it appeared that de novo review could have been in the cards for certain habeas claims. And now we know that is definitively true.
And, as I discussed in this previous
post, that will matter in some situations. So, once again, this is big news in habeasland.