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CHAPTER 1
BRIEF HISTORY OF IMMIGRATION LAWS
I. FIRST 100 YEARS: 1776–1875
A. Open Door Policy ............................................................................................................................................. 3
B. Naturalization Act of 1790 ............................................................................................................................... 3
C. Alien and Sedition Acts of 1798 ....................................................................................................................... 3
D. Steerage Act of 1819 ........................................................................................................................................ 3
E. Act to Encourage Immigration of 1864............................................................................................................. 3
II. FIRST IMMIGRATION RESTRICTIONS: 1875–1917
A. Act of March 3, 1875........................................................................................................................................ 3
B. Chinese Exclusion Act of 1882......................................................................................................................... 3
C. Immigration Act of 1882 .................................................................................................................................. 3
D. Alien Contract Labor Laws of 1885 and 1888 .................................................................................................. 3
E. Immigration Act of 1891................................................................................................................................... 3
F. 1903 Amendments ............................................................................................................................................ 3
G. Immigration Act of 1907 .................................................................................................................................. 4
III. FIRST QUOTA SYSTEMS: 1917–1951
A. Asiatic Barred Zone Act (Immigration Act of 1917) ........................................................................................ 4
B. Alien Enemies Act of 1918 ............................................................................................................................... 4
C. Passport Act of 1918 ......................................................................................................................................... 4
D. Quota Act of 1921 ............................................................................................................................................ 4
E. National Origin Quota Act (Immigration Act of 1924) ..................................................................................... 4
IV. 1952–1964
A. McCarran Walter Act (Immigration and Nationality Act of 1952) ................................................................... 4
V. 1965–1985
A. 1965 Amendments ............................................................................................................................................ 4
B. 1976 Amendments ............................................................................................................................................ 5
C. 1978 Amendments ............................................................................................................................................ 5
D. Refugee Act of 1980 ......................................................................................................................................... 5
E. 1981 Amendments ............................................................................................................................................ 5
VI. 1986–1995
A. Immigration Reform and Control Act of 1986 (IRCA) .................................................................................... 5
B. Immigration Marriage Fraud Amendments Act of 1986 (IMFA) ..................................................................... 5
C. Anti-Drug Abuse Act of 1986........................................................................................................................... 5
D. Omnibus Anti-Drug Abuse Act of 1988 ........................................................................................................... 6
E. Immigration Nursing Relief Act of 1989 (INRA) ............................................................................................. 6
F. Immigration Act of 1990 (IMMACT90) ........................................................................................................... 6
G. Armed Forces Immigration Adjustment Act of 1991 ....................................................................................... 7
H. Miscellaneous and Technical Immigration and Naturalization Amendments of 1991 ..................................... 7
I. Torture Victim Protection Act of 1991 (TVPA) ................................................................................................ 7
J. Chinese Student Protection Act of 1992 ............................................................................................................ 7
K. Soviet Scientists Immigration Act of 1992 ....................................................................................................... 7
L. Adjustment of Status Provisions of State Department Authorization Act ......................................................... 7
M. Violent Crime Control and Law Enforcement Act of 1994 ............................................................................. 7
N. Immigration and Nationality Technical Corrections Act of 1994 ..................................................................... 7
VII. 1996–2000
A. Anti-Terrorism and Effective Death Penalty Act of 1996 (AEDPA)................................................................ 8
B. Personal Responsibility and Work Opportunity Reconciliation Act of 1996 .................................................... 8
C. Illegal Immigration Reform and Immigrant Responsibility Act of 1996 (IIRIRA) .......................................... 8
D. Extension of Stay in the United States For Nurses Act................................................................................... 10
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
E. Nicaraguan Adjustment and Central American Relief Act (NACARA) ......................................................... 10
F. INA §§245(i) / 245(k) Legislation .................................................................................................................. 10
G. No Visas for Certain Haitian Nationals .......................................................................................................... 10
H. FY 1999 Omnibus Consolidated and Emergency Supplemental Appropriations Act..................................... 11
I. International Religious Freedom Act of 1998 .................................................................................................. 11
J. Irish Peace Process Cultural and Training Program Act of 1998 ..................................................................... 11
K. Nursing Relief for Disadvantaged Areas Act of 1999 .................................................................................... 12
L. Amendment to Definition of Adopted Child ................................................................................................... 12
M. Intercountry Adoption Act ............................................................................................................................. 12
N. American Competitiveness in the 21st Century Act (AC21) .......................................................................... 12
O. Syrian Adjustment Act ................................................................................................................................... 13
P. Victims of Trafficking and Violence Protection Act of 2000.......................................................................... 13
Q. Child Citizenship Act of 2000 ........................................................................................................................ 13
R. International Patient Act of 2000 .................................................................................................................... 13
S. Vietnamese, Cambodian and Laotian Adjustment .......................................................................................... 13
T. Disability Waiver for Persons Seeking Naturalization .................................................................................... 14
U. Legal Immigration Family Equity Act (LIFE); LIFE Act Amendments......................................................... 14
VIII. 9/11 ERA AND ITS AFTERMATH: 2001–2008
A. USA PATRIOT Act ....................................................................................................................................... 14
B. Work Authorization for Spouses of Treaty Traders & Treaty Investors ......................................................... 15
C. Work Authorization for Spouses of Intracompany Transferees ...................................................................... 15
D. Family Sponsor Immigration Act of 2002 ...................................................................................................... 15
E. Enhanced Border Security and Visa Entry Reform Act of 2002 ..................................................................... 15
F. Child Status Protection Act (CSPA)................................................................................................................ 16
G. Foreign Relations Authorization Act, FY 2003 .............................................................................................. 16
H. 21st Century Department of Justice Appropriations Authorization Act ......................................................... 16
I. Homeland Security Act of 2002 ....................................................................................................................... 16
J. Homeland Security Act of 2002 Amendments Act .......................................................................................... 17
K. National Defense Authorization Act for FY 2004 .............................................................................................. 17
L. Torture Victims Relief Reauthorization Act of 2003 ...................................................................................... 18
M. Trafficking Victims Protection Reauthorization Act of 2003 ........................................................................ 18
N. Consolidated Appropriations Act, 2004 ......................................................................................................... 18
O. L-1 Visa and H-1B Visa Reform Act of 2004 (Omnibus Appropriations Act for FY 2005) .......................... 18
P. Intelligence Reform and Terrorism Prevention Act of 2004 ........................................................................... 19
Q. REAL ID Act of 2005 .................................................................................................................................... 20
R. Violence Against Women Reauthorization Act of 2005 ................................................................................. 22
S. National Defense Authorization Act for FY 2006 ........................................................................................... 23
T. Adam Walsh Child Protection and Safety Act of 2006 ................................................................................... 23
U. Military Commissions Act of 2006 ................................................................................................................ 24
V. Secure Fence Act of 2006 ............................................................................................................................... 24
W. COMPETE Act of 2006................................................................................................................................. 24
X. Consolidated Appropriations Act of 2008 ...................................................................................................... 24
Y. National Defense Authorization Act for FY 2008 (NDAA) ........................................................................... 25
Z. Consolidated Natural Resources Act of 2008 (CNRA) ................................................................................... 26
AA. Heroes Earnings Assistance & Relief Tax Act of 2008 ............................................................................... 26
BB. Lantos / Hyde U.S. Global Leadership Against HIV/AIDS, Tuberculosis, and Malaria Reauth. Act .......... 26
CC. Child Soldiers Accountability Act of 2008 .................................................................................................. 26
DD. Extending the Conrad 30 Program Exception .............................................................................................. 26
EE. Military Personnel Citizenship Processing Act ............................................................................................ 26
FF. William Wilberforce Trafficking Victims Protection Reauthorization Act of 2008 (TVPRA) ..................... 27
IX. 111th–112th CONGRESS: 2009–2012
A. Employ American Workers Act ..................................................................................................................... 28
B. Afghan Allies Protection Act of 2009............................................................................................................. 28
C. DHS Appropriations Act for FY 2010 ............................................................................................................ 28
D. Human Rights Enforcement Act 2009 ............................................................................................................ 28
E. Travel Promotion Act of 2009 ........................................................................................................................ 29
F. Patient Protection and Affordable Care Act .................................................................................................... 29
G. Emergency Supplemental Appropriations for Border Security ...................................................................... 29
H. International Adoption Simplification Act ..................................................................................................... 29
I. Help HAITI Act of 2010; Help Haitian Adoptees Immediately to Integrate Act of 2010 ................................ 29
J. Easing Service Members’ Ability to Remove Conditional Residency ............................................................. 29
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CHAPTER 2
FEDERAL AND STATE AUTHORITY TO REGULATE
IMMIGRATION AND THE RIGHTS OF ALIENS
I. THE SOURCES OF FEDERAL POWER OVER IMMIGRATION
A. Enumerated Constitutional Powers ................................................................................................................. 33
1. The Commerce Clause ............................................................................................................................. 33
2. The Naturalization Clause ........................................................................................................................ 33
3. The Migration and Importation Clause...................................................................................................... 33
4. The War Power........................................................................................................................................ 33
B. Implied Constitutional Powers ........................................................................................................................ 33
1. As an Incident of Sovereignty .................................................................................................................. 33
2. As an Incident of Foreign Policy .............................................................................................................. 33
II. THE LIMITATION OF FEDERAL POWER
THROUGH THE ASSERTION OF ALIENS’ RIGHTS
A. Standard of Review; Levels of Scrutiny ......................................................................................................... 34
1. Strict Scrutiny.......................................................................................................................................... 34
2. Intermediate Scrutiny ............................................................................................................................... 34
3. Rational Basis Test .................................................................................................................................. 34
B. Who Has Acted? ............................................................................................................................................. 34
1. The Legislative Branch ............................................................................................................................ 34
2. The Executive Branch .............................................................................................................................. 35
3. Lower Level Government Officials .......................................................................................................... 36
C. What Is the Issue? ........................................................................................................................................... 36
1. Distinction Based on Race or National Origin ........................................................................................... 36
2. Distinction Based on Alienage.................................................................................................................. 36
3. Distinction Based on Physical Location .................................................................................................... 37
4. Distinctions Among Aliens in Immigration Matters ................................................................................... 37
a. Generally............................................................................................................................................. 37
b. Fundamental or Substantial Right Implicated ........................................................................................ 38
c. Race or National Origin ....................................................................................................................... 38
d. Gender ................................................................................................................................................ 39
e. Inadmissible vs. Deportable.................................................................................................................. 39
D. Relief from Removal: A Matter of Grace or a Matter of Right ...................................................................... 42
III. STATE EFFORTS TO LIMIT THE RIGHTS OF ALIENS
A. State vs. Federal Government ......................................................................................................................... 42
1. In General ............................................................................................................................................... 42
2. Preemption Issues .................................................................................................................................... 43
3. Key Provisions of State Laws Being Challenged ....................................................................................... 43
4. Political Sovereignty ................................................................................................................................ 45
B. Immigration-Related Classifications and Issues ............................................................................................. 46
1. Alienage .................................................................................................................................................. 46
2. Fundamental or Substantial Right Implicated ............................................................................................ 46
3. Race or National Origin ........................................................................................................................... 46
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CHAPTER 3
ADMISSION AND REMOVAL
I. LAWFUL ADMISSION AS THE DEFINING CONCEPT
A. Lawful Admission, Not Entry, is the Defining Concept ................................................................................. 59
B. Parole Is Not an Admission ............................................................................................................................ 60
C. Parole-in-Place................................................................................................................................................ 60
D. Applicants for Admission ............................................................................................................................... 60
E. No Departure Means No New Admission ....................................................................................................... 61
F. The Constitutional Question............................................................................................................................ 61
G. Territorial Waters and Admission................................................................................................................... 61
H. Admission and Adjustment of Status.............................................................................................................. 62
I. Admission Flexibly Applied in Other Contexts ............................................................................................... 63
II. ADMISSION AND LAWFUL PERMANENT RESIDENTS (LPRs)
A. Traditional Fleuti Doctrine ............................................................................................................................. 63
B. New Definition of Admission for LPRs.......................................................................................................... 63
C. Continuing Validity of Fleuti? ........................................................................................................................ 63
D. No Retroactive Application of INA §101(a)(13)(C) ....................................................................................... 64
E. Application of Fleuti to Non-LPRs ................................................................................................................. 64
F. Burden of Proof ............................................................................................................................................... 65
G. LPR Return Without Proper Documents ........................................................................................................ 65
III. GROUNDS OF INADMISSIBILITY; PERSONS INELIGIBLE FOR VISAS AND ADMISSION
A. Health-Related Grounds ................................................................................................................................. 65
1. Communicable Disease of Public Health Significance ............................................................................... 65
2. Vaccinations ............................................................................................................................................ 66
3. Physical or Mental Disorder ..................................................................................................................... 68
4. Persons Determined to Be Drug Abusers or Addicts (in accordance with HHS regulations) ........................ 69
5. Guardian Accompanying Helpless Alien................................................................................................... 70
6. Appeal .................................................................................................................................................... 70
7. Burden of Proof ....................................................................................................................................... 70
8. Effect of IMMACT90 .............................................................................................................................. 70
B. Economic Grounds ......................................................................................................................................... 70
1. Persons Likely to Become Public Charge .................................................................................................. 70
2. Person Seeking Entry for Purpose of Performing Skilled or Unskilled Labor .............................................. 78
3. Certain Medical Graduates of Nonapproved Schools ................................................................................. 78
4. Uncertified Foreign Health Care Workers ................................................................................................. 79
5. Former Citizens Who Renounce Citizenship for Tax Purposes ................................................................... 81
6. Grounds of Exclusion Eliminated ............................................................................................................. 81
C. Criminal Grounds ........................................................................................................................................... 81
1. Crimes Involving Moral Turpitude (CIMT)............................................................................................... 81
2. Drug Offenses ....................................................................................................................................... 101
3. Money Laundering ................................................................................................................................ 105
4. Two or More Offenses ........................................................................................................................... 105
5. Prostitution ............................................................................................................................................ 106
6. Significant Traffickers in Persons ........................................................................................................... 106
7. Diplomats and Others Granted Immunity from Prosecution ..................................................................... 106
D. Inadmissibility on Moral Grounds ................................................................................................................ 107
1. Polygamists ........................................................................................................................................... 107
2. Immoral Sex Acts .................................................................................................................................. 107
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
III. Grounds of Inadmissibility, cont’d
E. Violation of INA Laws Regarding Entry or Documentation........................................................................ 107
1. Certain Aliens Previously Removed ....................................................................................................... 107
2. Persons Unlawfully Present in the U.S. ................................................................................................... 108
a. Three-Year Bar .................................................................................................................................. 108
b. Ten-Year Bar..................................................................................................................................... 109
c. Counting the 6 Months and One Year; Unlawful Presence is Not Counted in the Aggregate.................. 109
d. Counting the 3/10 Years ..................................................................................................................... 109
e. Unlawful Presence Defined ................................................................................................................ 109
f. Exceptions ......................................................................................................................................... 113
g. Tolling for Good Cause ...................................................................................................................... 113
h. Embassy Investigation ....................................................................................................................... 114
i. Agency Reporting .............................................................................................................................. 114
j. INA §245(i) Eligibility ....................................................................................................................... 114
k. Waivers ............................................................................................................................................. 115
3. Persons Unlawfully Present Who Enter or Seek to Enter EWI.................................................................. 118
4. Persons Present Without Admission or Parole ......................................................................................... 119
5. Failure to Attend Removal Proceeding.................................................................................................... 119
6. Stowaways ............................................................................................................................................ 120
7. Smugglers ............................................................................................................................................. 120
8. Document Fraud .................................................................................................................................... 121
9. Student Visa Abuse................................................................................................................................ 121
F. Fraud and Material Misrepresentation........................................................................................................... 121
1. In General ............................................................................................................................................. 121
2. Presumption for Certain Nonimmigrants ................................................................................................. 121
3. Fraudulent Conduct of Parent Should Not Be Attributed to Child............................................................. 122
4. Seeking Asylum As Indicator ................................................................................................................. 122
5. Fraud Indicators..................................................................................................................................... 122
6. Materiality............................................................................................................................................. 122
7. Willfulness ............................................................................................................................................ 124
8. Intent to Deceive.................................................................................................................................... 124
9. Burden of Proof ..................................................................................................................................... 124
10. Relation-Back Doctrine .......................................................................................................................... 125
11. SAW and Legalization Fraud ................................................................................................................. 125
12. Consular Advisory Opinion .................................................................................................................... 125
13. INA §212(a)(6)(C)(i) in Lieu of INA §204(c) ......................................................................................... 125
14. Substantial Evidence Standard of Review ............................................................................................... 125
15. Waiver .................................................................................................................................................. 125
G. Inadequate Documentation ........................................................................................................................... 125
H. Miscellaneous Grounds of Inadmissibility ................................................................................................... 126
1. Aliens Ineligible for Citizenship, or Aliens Who Evaded the Draft ........................................................... 126
2. Falsely Claiming Citizenship .................................................................................................................. 126
3. Unlawful Voting .................................................................................................................................... 127
4. International Child Abduction ................................................................................................................ 128
5. Illiteracy ................................................................................................................................................ 128
I. Security and Related Grounds ........................................................................................................................ 128
1. Espionage, Sabotage, or Illegal Activity.................................................................................................. 128
2. Terrorist Activity ................................................................................................................................... 129
3. Association with Terrorist Organizations ................................................................................................ 141
4. Foreign Policy Grounds ......................................................................................................................... 141
5. Immigrant Membership in Totalitarian Party ........................................................................................... 142
6. Nazis, Persons Committing Genocide, Persons Committing Torture......................................................... 142
7. Violators of Religious Freedom .............................................................................................................. 143
8. Recruitment of Child Soldiers ................................................................................................................ 143
9. The Cuban Liberty and Democratic Solidarity Act of 1996 ...................................................................... 143
10. Confiscators of American Property ......................................................................................................... 143
11. Persons Who Disclose Confidential Business Information ....................................................................... 143
12. Certain Haitian Nationals ...................................................................................................................... 144
13. Forced Abortion or Sterilization Policies ................................................................................................ 144
14. Aiders or Abettors to Colombian Insurgent and Paramilitary Groups........................................................ 144
15. Persons Engaged in Coerced Organ or Bodily Tissue Transplantation ...................................................... 144
16. Burmese Involved in Repression ............................................................................................................ 144
17. Presidential Proclamations ..................................................................................................................... 144
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CHAPTER 3 • ADMISSION AND REMOVAL
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J. Waivers of Inadmissibility ............................................................................................................................. 145
1. INA §212(a) Waivers ............................................................................................................................. 145
2. Cancellation of Removal for LPRs ......................................................................................................... 145
3. Continuing Availability of §212(c) Waivers ............................................................................................ 145
4. INA §209(c) .......................................................................................................................................... 145
5. INA §212(d)(1) ..................................................................................................................................... 146
6. INA §212(d)(3)(A) ................................................................................................................................ 146
7. INA §212(d)(4) ..................................................................................................................................... 147
8. INA §212(d)(11).................................................................................................................................... 148
9. INA §212(d)(12).................................................................................................................................... 148
10. INA §212(d)(13).................................................................................................................................... 148
11. INA §212(d)(14).................................................................................................................................... 148
12. INA §212(e) .......................................................................................................................................... 148
13. INA §212(g) .......................................................................................................................................... 148
14. INA §212(h) .......................................................................................................................................... 148
a. 15-Year Statute of Limitations ........................................................................................................... 149
b. Extreme Hardship Waiver .................................................................................................................. 149
c. VAWA Self-Petitioners...................................................................................................................... 149
d. Good Moral Character ....................................................................................................................... 149
e. Apparent Eligibility ........................................................................................................................... 149
f. Application to Marijuana Convictions................................................................................................. 150
g. Not Available to Certain LPRs ........................................................................................................... 150
h. Application to Exclusion, Deportation, and Reopened Proceedings ......................................................... 152
i. Not Available to Cure a Conviction that Bars Non-LPR Cancellation................................................... 152
j. Judicial Review ................................................................................................................................. 152
k. Waiver is filed on Form I-601. ........................................................................................................... 152
15. INA §212(i) ........................................................................................................................................... 153
a. USC/LPR Children Are No Longer Qualifying Relatives..................................................................... 153
b. Extreme Hardship Factors .................................................................................................................. 153
c. Favorable Exercise of Discretion ........................................................................................................ 154
d. Use of the Fraud As an Adverse Factor ............................................................................................... 154
e. Unavailable to Waive Inadmissibility under INA §212(a)(6)(F) .......................................................... 154
f. Submitted on Form I-601 ................................................................................................................... 154
g. Administrative and Judicial Review .................................................................................................... 154
16. INA §212(k) .......................................................................................................................................... 155
17. INA §213 .............................................................................................................................................. 155
K. Forms for Waiver ......................................................................................................................................... 155
L. Consular Decision on Waiver ................................................................................................................. 155
M. Fee Waivers ................................................................................................................................................. 155
N. Right to Notice of Denial of Visa ................................................................................................................. 156
O. Effective Date ............................................................................................................................................... 156
1. Under IMMACT90 ................................................................................................................................ 156
2. Under IIRIRA........................................................................................................................................ 156
IV. PROCEDURES GOVERNING INADMISSIBILITY
A. Preliminary Procedures upon Arrival in the U.S. ......................................................................................... 156
1. Alien Subject to Inspection at Border...................................................................................................... 156
2. Money Laundering Watch List ............................................................................................................... 157
3. Disclosure of Lookout Information ......................................................................................................... 157
4. Disclosure of ADIS and ENFORCE / IDENT Records ............................................................................ 157
5. Challenging US-VISIT Records ............................................................................................................. 158
6. Challenging ADIS Records .................................................................................................................... 158
7. Challenging ENFORCE / IDENT Records .............................................................................................. 158
8. DHS-TRIP: Challenging a Lookout and Secure Flight Determination ...................................................... 158
9. Removing Information from CLASS ...................................................................................................... 158
10. Representation ....................................................................................................................................... 158
11. Medical Grounds ................................................................................................................................... 159
12. Public Charge ........................................................................................................................................ 159
B. Low Risk Border Travelers........................................................................................................................... 159
1. Global Entry Program ............................................................................................................................ 159
2. Other Programs ..................................................................................................................................... 160
C. Persons Subject to Inspection ....................................................................................................................... 160
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
IV. Procedures Governing Inadmissibility, cont’d
D. Expedited Removal ...................................................................................................................................... 160
1. Generally .............................................................................................................................................. 160
2. Exceptions............................................................................................................................................. 161
a. Credible Fear of Persecution .............................................................................................................. 161
b. Cubans. ............................................................................................................................................. 161
c. Persons Seeking Entry to CMNI ......................................................................................................... 161
d. LPRs, Persons Granted Refugee or Asylee Status, USCs ..................................................................... 162
e. Lawfully Admited Persons ................................................................................................................. 162
f. Minors .............................................................................................................................................. 162
g. Visa Waiver Program Entrants ........................................................................................................... 162
h. Prosecutorial Discretion ..................................................................................................................... 162
3. Detention and Parole .............................................................................................................................. 162
4. Bar to Cancellation ................................................................................................................................ 162
5. Administrative Review .......................................................................................................................... 162
6. Judicial Review ..................................................................................................................................... 163
7. Stay of Removal .................................................................................................................................... 163
E. Removal of Suspected Terrorists and Foreign Policy or Security Threats .................................................... 163
F. Stowaways .................................................................................................................................................... 164
G. Other Removal Where Admissibility is Challenged at the Border ............................................................... 164
H. Deferred Inspection ...................................................................................................................................... 164
I. Parole ............................................................................................................................................................. 164
J. Withdrawal of Application ............................................................................................................................ 165
K. Detention of Inadmissible Persons ............................................................................................................... 166
1. Overview .............................................................................................................................................. 166
2. Detention of Inadmissible Arriving Aliens (Including Returning LPRs) ................................................... 166
3. Persons Who Are Not “Arriving Aliens” or Subject to Mandatory Detention on Criminal/Terrorism Grounds ........ 167
4. Persons Who Are Not Arriving Aliens But Who Are Placed in Expedited Removal .................................. 168
5. Mandatory Detention of Persons Inadmissible on Criminal or Terrorism Grounds under INA §236(c)....... 168
6. Challenge by Returning LPRs to Mandatory or Nonmandatory Detention ................................................ 168
7. Mandatory Detention of Suspected Terrorists .......................................................................................... 169
8. Detention of Persons Subject to Expedited Removal................................................................................ 169
9. Prolonged and Indefinite Detention of Inadmissible Persons Pending Removal Proceedings ..................... 169
10. ICE Parole Generally ............................................................................................................................. 170
11. Judicial Review of Detention Decisions .................................................................................................. 171
12. Parole Revocation .................................................................................................................................. 175
13. Cuban Review Plan................................................................................................................................ 175
14. Review Procedures for Non–Mariel Cuban and Other Indefinite Detainees .............................................. 175
15. Humanitarian Parole to USCIS ............................................................................................................... 175
a. Medical Parole................................................................................................................................... 176
16. Humanitarian Parole Request by Consul ................................................................................................. 176
17. Release During Stay Order ..................................................................................................................... 176
18. Detention and Release of Juveniles ......................................................................................................... 176
19. Detention of Persons In Vulnerable Categories........................................................................................ 176
20. Employment While Detained ................................................................................................................. 176
21. Force Feeding During Detention............................................................................................................. 176
22. Detention at Overseas Facilities (Guantanamo) ....................................................................................... 176
23. Release of Identity and Information Relating to Detainees ....................................................................... 176
24. Conditions of Confinement .................................................................................................................... 177
25. Death of Persons in Detention ................................................................................................................ 179
L. Special Registration (NSEERS) .................................................................................................................... 179
M. Removal Hearing for Persons Seeking Admission ...................................................................................... 180
1. General ................................................................................................................................................. 180
2. Effective Date........................................................................................................................................ 180
3. Prehearing Matters ................................................................................................................................. 180
4. Removal Hearing for Person Deemed Inadmissible ................................................................................. 181
a. Right to Fundamentally Fair Hearing .................................................................................................. 181
b. Continuances ..................................................................................................................................... 181
c. Burden of Proof ................................................................................................................................. 181
d. In Absentia Removal .......................................................................................................................... 183
e. Translations ....................................................................................................................................... 183
5. Relief for Persons Deemed Inadmissible ................................................................................................. 183
a. Admission ......................................................................................................................................... 183
b. Asylum or Withholding of Deportation ............................................................................................... 184
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c. Adjustment of Status .......................................................................................................................... 184
d. Unconditional Withdrawal of Application for Admission .................................................................... 184
e. Voluntary Departure .......................................................................................................................... 184
f. Permission to reapply for admission nunc pro tunc .............................................................................. 184
g. Prosecutorial Discretion ..................................................................................................................... 184
6. Summary Decision ................................................................................................................................ 184
7. Consequences of Removal for Inadmissibility ......................................................................................... 184
a. Adjustment ........................................................................................................................................ 184
b. SAW Program ................................................................................................................................... 185
8. Physical Removal .................................................................................................................................. 185
9. Stay of Removal .................................................................................................................................... 186
10. Appeals; Motions to Reopen .................................................................................................................. 186
V. DEPORTATION GROUNDS
A. Inadmissible at Time of Entry or Adjustment of Status ................................................................................ 186
B. Other Status Violations ................................................................................................................................. 186
1. Present in U.S. in Violation of INA or Any Other U.S. Law, or with Revoked NIV .................................. 186
2. Failure to Maintain Nonimmigrant Status ............................................................................................... 187
3. Termination of Conditional Permanent Residence ................................................................................... 188
4. Encouraged, Induced, Assisted, Abetted, or Aided Alien to Enter U.S. ..................................................... 188
5. Marriage Fraud ...................................................................................................................................... 188
C. Economic Reasons ........................................................................................................................................ 188
1. Public Charge ........................................................................................................................................ 188
2. Institutionalized Persons ........................................................................................................................ 189
D. Security/Political Related Grounds ............................................................................................................... 189
1. In General ............................................................................................................................................. 189
2. Terrorist Activities ................................................................................................................................. 189
3. Foreign Policy ....................................................................................................................................... 189
4. Nazi, Genocide, or Commission of Any Act of Torture or Extrajudicial Killing ........................................ 190
5. Recipient of Military-Type Training ....................................................................................................... 190
6. Severe Violation of Religious Freedom................................................................................................... 190
7. Recruitment of Child Soldiers ................................................................................................................ 190
E. Failure to Register and Falsification of Documents ...................................................................................... 191
F. Unlawful Voting ........................................................................................................................................... 191
G. Criminal Grounds ......................................................................................................................................... 192
1. Sentence and Term of Imprisonment....................................................................................................... 192
2. Collateral Attack on Criminal Conviction in Removal Not Permissible .................................................... 192
3. Crimes of Moral Turpitude ..................................................................................................................... 192
a. Generally........................................................................................................................................... 192
b. Multiple CIMTs ................................................................................................................................. 194
c. Juvenile Delinquency ......................................................................................................................... 195
d. Foreign Convictions ........................................................................................................................... 195
4. Aggravated Felonies .............................................................................................................................. 195
a. Murder, rape, or sexual abuse of a minor ............................................................................................ 195
b. Illicit trafficking in controlled substance ............................................................................................. 198
c. Illicit trafficking in any firearms or destructive devices........................................................................ 204
d. Any offense related to laundering of monetary instruments ................................................................. 204
e. Explosives, Firearms, Arson ............................................................................................................... 204
f. Crimes of Violence (COVs) ............................................................................................................... 206
g. Theft, Burglary, or Receipt of Stolen Property .................................................................................... 212
h. Ransom Offenses ............................................................................................................................... 215
i. Child Pornography Offenses............................................................................................................... 215
j. RICO Offenses .................................................................................................................................. 215
k. Prostitution and Slavery Offenses ....................................................................................................... 215
l. National Defense Offenses ................................................................................................................. 216
m. Fraud/Deceit; Tax Evasion ................................................................................................................. 216
n. Alien Smuggling Offenses ................................................................................................................. 220
o. Offenses Described in §§275(a) or 276 by One Previously Deported for Aggravated Felony ................. 220
p. Falsely Making, Forging, Counterfeiting, Mutilating, Or Altering A Passport Or Instrument ................. 220
q. Offenses Relating to Failure to Appear for Service of Sentence............................................................ 221
r. Offenses Relating to Commercial Bribery, Counterfeiting, Forgery, Trafficking in Vehicles ................. 221
s. Offenses Relating to Obstruction of Justice ........................................................................................ 221
t. Offenses Relating to a Failure to Appear ............................................................................................. 222
u. Attempts to Commit Any of the Above Offenses................................................................................. 222
v. Conspiracies to Commit Any of the Above Offenses ........................................................................... 223
w. Aiding and Abetting / Accessory After the Fact................................................................................... 223
❏ OK to proceed
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
V. Deportation Grounds, cont’d
G. Criminal Grounds, cont’d
5. Other Aggravated Felony Issues ............................................................................................................. 224
a. Federal and State Law Apply.............................................................................................................. 224
b. State Offenses as Aggravated Felonies ................................................................................................ 224
c. “Described In” Language in Aggravated Felony Statutes ..................................................................... 225
d. “Relating To” Language..................................................................................................................... 226
e. “Involves” Language ......................................................................................................................... 226
f. Ordinary Meaning of “Aggravated Felony”......................................................................................... 226
g. Foreign Convictions ........................................................................................................................... 227
h. Categorical and Modified Categorical Approach ................................................................................. 227
i. Bypassing the Categorical/Modified Categorical Approach ................................................................. 235
j. Hypothetical Approach Rejected ........................................................................................................ 235
k. Definition of Term of Imprisonment ................................................................................................... 235
l. Effective Date.................................................................................................................................... 237
6. High Speed Flight .................................................................................................................................. 240
7. Drug-Related Offenses ........................................................................................................................... 240
8. Firearms Violations ............................................................................................................................... 242
9. Sex Traffickers ...................................................................................................................................... 244
10. Miscellaneous Crimes ............................................................................................................................ 244
11. Domestic Violence, Stalking, Protective Order Violations, and Child Abuse ............................................ 244
12. Sex Offender Who Fails to Register........................................................................................................ 246
13. Prostitution Eliminated .......................................................................................................................... 246
H. Effective Date / Savings Provision ............................................................................................................... 246
VI. A CONVICTION UNDER THE INA
A. Definition ..................................................................................................................................................... 248
1. Previous Definition Removed................................................................................................................. 248
2. BIA Interpretation Generally Upheld ...................................................................................................... 248
3. Roldan and Its Progeny .......................................................................................................................... 249
4. Punishment under the Definition of Conviction ....................................................................................... 250
5. Ozark Definition Upheld ........................................................................................................................ 250
6. Court-Martial Is a Conviction ................................................................................................................. 250
7. Judgment of Guilt Not Necessarily a Conviction ..................................................................................... 251
8. Pretrial Intervention May Not Be a Conviction........................................................................................ 251
9. Vacated Conviction May Not Be a Conviction ........................................................................................ 251
10. Vacating a Sentence ............................................................................................................................... 253
11. Juvenile Proceedings Not a Conviction ................................................................................................... 253
12. Conviction Not Reviewed ...................................................................................................................... 253
13. Enhancement of a Sentence as a Conviction ............................................................................................ 253
14. Reason to Believe Even if Conviction Is Vacated .................................................................................... 254
B. Finality of Conviction ................................................................................................................................... 254
1. In General ............................................................................................................................................. 254
2. Post-conviction remedies ....................................................................................................................... 254
3. Withheld Execution ............................................................................................................................... 254
4. Collateral Attack of Conviction in EOIR Hearing or Challenge to IJ Hearing ........................................... 255
C. Guilty Pleas................................................................................................................................................... 255
1. Plea and Restraint Is a Conviction .......................................................................................................... 255
2. Judge Must Advise Noncitizen of Immigration Consequences ................................................................. 255
3. Counsel Must Advise Noncitizen of Immigration Consequences of Plea .................................................. 256
4. Alford Plea ............................................................................................................................................ 257
5. Not an Admission as to Specifics............................................................................................................ 258
6. Nolo Plea Combined with Punishment .................................................................................................... 258
7. Elements of Offense............................................................................................................................... 258
8. Fast Track Pleas..................................................................................................................................... 258
9. Effect of Withdrawn Plea ....................................................................................................................... 259
D. Foreign Convictions ..................................................................................................................................... 259
E. Misprision/Solicitation/Accessory ................................................................................................................ 259
VII. RELIEF FROM CONVICTIONS
A. Judicial Recommendations Against Deportation (JRAD) ............................................................................ 260
B. Expungement of Conviction ......................................................................................................................... 261
C. Pardons ......................................................................................................................................................... 264
D. Writ of Error Coram Nobis ........................................................................................................................... 265
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E. Writ of Audita Querela ................................................................................................................................. 265
F. All Writs Act ................................................................................................................................................. 265
G. Habeas Corpus to Vacate or Set Aside Conviction; State Counterparts ....................................................... 266
H. Motion to Withdraw Plea ............................................................................................................................. 266
I. Motion to Correct or Reduce Sentence .......................................................................................................... 266
J. Other Forms of Relief .................................................................................................................................... 267
VIII. CRIMINAL MATTERS RELATED TO REMOVAL
A. Requirements Concerning Probation ............................................................................................................ 267
B. Conviction for Reentry or Being Found in U.S. After Deportation .............................................................. 268
1. Reentry ................................................................................................................................................. 268
2. “Found In” ............................................................................................................................................ 272
3. Statute of Limitations Defense................................................................................................................ 275
4. Double Jeopardy .................................................................................................................................... 275
5. Necessity Defense.................................................................................................................................. 275
6. Entrapment by Estoppel ......................................................................................................................... 275
7. Defense that Person Was Involuntarily in U.S. ........................................................................................ 275
8. Miranda Warnings ................................................................................................................................. 276
9. Arrest Improper as Defense .................................................................................................................... 276
10. Person Not Deported .............................................................................................................................. 276
11. Collateral Attack on Validity of First Deportation Order Permitted .......................................................... 276
C. Conviction for Bringing In, Harboring, Transporting, or Encouraging ........................................................ 284
1. In General ............................................................................................................................................. 284
2. Bringing into or Attempt to Bring into the United States .......................................................................... 285
3. Bringing to the United States .................................................................................................................. 285
4. Transporting .......................................................................................................................................... 286
5. Harboring / Concealing / Shielding from Detection ................................................................................. 288
6. Encouraging .......................................................................................................................................... 289
7. Conspiracy or Aiding/Abetting Commission of Any of the Acts in INA §274(a)(1)(A) ............................. 289
8. Immediate Presentation .......................................................................................................................... 289
9. Defenses................................................................................................................................................ 289
10. Forfeiture and Seizure ............................................................................................................................ 290
D. Aiding or Assisting Inadmissible Persons to Enter ....................................................................................... 293
E. Marriage Fraud ............................................................................................................................................. 293
F. Fraudulent Documents for Entry / False Statements ..................................................................................... 294
G. Identification Document Fraud ..................................................................................................................... 295
H. Fraud and Related Activity in Connection with Identification Documents .................................................. 295
I. Aggravated Identity Theft in Conjunction with Immigration and Other Crimes ............................................ 296
J. Knowing and Willful Use of a False Passport ............................................................................................... 296
K. Knowing and Willful False Statement to Obtain U.S. Passport .................................................................... 296
L. Destruction of Official Documents ............................................................................................................... 297
M. False Statements .......................................................................................................................................... 297
N. Failure to Disclose Role as Document Preparer ........................................................................................... 297
O. False Claim to U.S. Citizenship .................................................................................................................... 297
P. Voting in Federal Election ............................................................................................................................ 297
Q. Employer Sanctions ...................................................................................................................................... 297
R. Failure to Depart After Deportation Order.................................................................................................... 298
S. Willful Failure to Comply with Terms of Release Order .............................................................................. 298
T. Amnesty and SAW Fraud ............................................................................................................................. 298
U. Escape from Removal................................................................................................................................... 298
V. EWI / Attempt to Enter................................................................................................................................. 298
W. High Speed Flight from Immigration Checkpoint ....................................................................................... 299
X. Failure to Maintain a Green Card ................................................................................................................. 299
Y. Aliens in Possession of a Firearm ................................................................................................................. 299
Z. Social Security Fraud .................................................................................................................................... 299
AA. Withholding Documents to Further Trafficking in Persons ....................................................................... 299
BB. International Marriage Brokers .................................................................................................................. 299
CC. RICO Predicate Offenses ........................................................................................................................... 300
DD. Forced Labor, Peonage, and Document Servitude ..................................................................................... 300
EE. Importation of an Alien for Prostitution or Other Immoral Purposes ......................................................... 300
❏ OK to proceed
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
VIII. Criminal Matters Related to Removal, cont’d
FF. Hostage Taking by Aliens of U.S. Nationals .............................................................................................. 300
GG. Other Criminal-Related Issues ................................................................................................................... 300
1. Agreements with U.S. Attorney as Part of Plea ....................................................................................... 300
2. Deportation and Fugitive Status .............................................................................................................. 300
3. Departure of Witnesses .......................................................................................................................... 300
4. Juvenile Aliens ...................................................................................................................................... 301
5. Criminal Forfeitures ............................................................................................................................... 301
6. Reporting Criminal Conduct................................................................................................................... 301
7. Sentencing............................................................................................................................................. 301
8. Stipulation to Deportation as Basis for Downward Departure................................................................... 313
9. Delay in Charging Defendant ................................................................................................................. 314
10. Former Rule Against Judicial Deportation .............................................................................................. 314
11. Current Statutes Allowing Judicial Deportation ....................................................................................... 314
12. Extradition of Persons Who Are Not Citizens, Nationals, or LPRs ........................................................... 314
13. Prisoner Transfer Treaties ...................................................................................................................... 314
14. Speedy Trial .......................................................................................................................................... 315
IX. FINES
A. In General ..................................................................................................................................................... 315
B. Procedures for All Fines Except INA §274 .................................................................................................. 316
C. Civil Penalties for Document Fraud.............................................................................................................. 317
D. Civil Penalty for Failure to Depart ............................................................................................................... 320
X. REMOVAL PROCEDURES
A. Effect of Deportation .................................................................................................................................... 320
B. Due Process .................................................................................................................................................. 321
C. USCIS Forms Have Force of Law ................................................................................................................ 330
D. REAL ID Act Standard for Relief ................................................................................................................ 331
E. De Facto Deportation of USC or LPR Children and Separating Families..................................................... 331
F. Suppression of Illegally Obtained Evidence.................................................................................................. 332
G. Encounters/Interrogation .............................................................................................................................. 335
1. Initial Determination .............................................................................................................................. 335
2. Stops ..................................................................................................................................................... 335
3. Frisking ................................................................................................................................................. 339
4. Seizures ................................................................................................................................................. 339
5. Interrogation Procedure .......................................................................................................................... 339
6. Use of Force .......................................................................................................................................... 340
H. Area Control Operations / Investigative Searches / Worksite Enforcement Operations ............................... 340
1. Broad Factory Sweeps ........................................................................................................................... 340
2. Standing to Contest Search or Warrant.................................................................................................... 341
3. Challenging the Warrant ........................................................................................................................ 341
4. Warrantless Searches and Seizures ......................................................................................................... 341
a. Open-Field Raids ............................................................................................................................... 341
b. Night-Vision Goggles ........................................................................................................................ 341
c. Migrant Farm Dwellings .................................................................................................................... 342
d. Stops of Hispanic-Looking Persons .................................................................................................... 342
e. Presumption of Unreasonableness ...................................................................................................... 342
f. Reliance on Claims of State Officers That They Will Obtain Warrant .................................................. 342
g. Consent to Search .............................................................................................................................. 342
h. Wiretaps ............................................................................................................................................ 342
i. Consensual Recording........................................................................................................................ 342
5. Border/Checkpoint Search and Seizure ................................................................................................... 343
a. Border Searches ................................................................................................................................. 343
b. Fixed Checkpoints that are Equivalent to the Border ........................................................................... 343
c. Laptop Searches at the Border ............................................................................................................ 344
d. Search in International Waters ............................................................................................................ 344
6. Driver’s Licenses ................................................................................................................................... 344
7. Sting Operations .................................................................................................................................... 344
8. Schools, Churches, and Funerals ............................................................................................................ 344
I. Subpoenas ...................................................................................................................................................... 344
J. Retention of Documents ................................................................................................................................ 345
❏ OK to proceed
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CHAPTER 3 • ADMISSION AND REMOVAL
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K. Arrest .......................................................................................................................................................... 345
1. In General ............................................................................................................................................. 345
2. Secondary Inspection ............................................................................................................................. 346
3. Arrest in Violation of §287(a)(2) ............................................................................................................ 346
4. Arrest Warrant ....................................................................................................................................... 346
5. Arrest of Person Claiming USC Status .................................................................................................... 346
6. VAWA, T, or U Visa Arrests ................................................................................................................. 347
7. Detention Without Charge...................................................................................................................... 347
8. DEA Authority to Arrest ........................................................................................................................ 347
9. State and Local Authority to Arrest ........................................................................................................ 347
10. FBI Given Authority to Make Immigration Arrests ................................................................................. 348
11. Military Officers and Others Not Authorized to Arrest ............................................................................ 348
L. Detention....................................................................................................................................................... 348
1. Release on Bond .................................................................................................................................... 348
2. Prosecutorial Discretion in Detention...................................................................................................... 349
3. Prosecutors Responsibility upon Claim of USC....................................................................................... 349
4. Release of Detainee with I-130 or Other Pending Application or Petition with Current Priority Date ......... 349
5. Mandatory Detention for Aggravated Felons, Other Persons with Convictions, and Terrorists................... 349
6. Detention as a Condition of Voluntary Departure .................................................................................... 349
7. Location of Detention ............................................................................................................................ 349
8. Transfer of Detainees ............................................................................................................................. 350
9. Conditions of Confinement .................................................................................................................... 350
10. DNA Sampling ...................................................................................................................................... 350
11. Strip Search and View of Detainees ........................................................................................................ 351
M. Release of Identity and Information Relating to Detainees .......................................................................... 351
N. Bonds ........................................................................................................................................................... 351
1. Maintenance of Status and Departure Bond ............................................................................................. 351
2. Delivery Bond ....................................................................................................................................... 351
3. Public Charge Bond ............................................................................................................................... 351
4. Standards, Criteria, and Conditions of Bond............................................................................................ 351
5. Bond Procedure ..................................................................................................................................... 353
6. Asylum Applicants ................................................................................................................................ 354
7. Juveniles ............................................................................................................................................... 355
8. Appeals to BIA ...................................................................................................................................... 355
9. Federal Court Review of Detention Pending Proceedings ........................................................................ 356
10. Breach of Bond...................................................................................................................................... 358
O. Conditional Parole ........................................................................................................................................ 359
P. Detainers ....................................................................................................................................................... 359
Q. Bail Reform Act ........................................................................................................................................... 362
R. Special Rules for Detention of Aggravated Felons, Persons Convicted of Certain Crimes, and Terrorists ........... 363
1. Detention Laws from 1988 to 1996......................................................................................................... 363
2. The IIRIRA Provisions .......................................................................................................................... 363
3. Constitutional and Statutory Challenges to Mandatory Detention ............................................................. 366
a. Statutory Challenges .......................................................................................................................... 366
b. Constitutional and Statutory Challenges to Prolonged Detention .......................................................... 367
c. Other Challenges to Detention ............................................................................................................ 369
(1) Prolonged Detention Pending Judicial Review and Stay of Removal .......................................... 369
(2) Post–Final Order Indefinite Detention ....................................................................................... 370
(3) Review of Discretionary Decisions ........................................................................................... 371
(4) Other Detention Without Hearing Before Impartial Adjudicator ................................................. 371
(5) Medical Release....................................................................................................................... 372
(6) Bivens Action for Unlawful Detention ...................................................................................... 372
(7) Remedy For Unlawful Detention .............................................................................................. 372
S. Mandatory Detention of Suspected Terrorists ............................................................................................... 373
T. Removal Hearings ......................................................................................................................................... 375
1. Initiation................................................................................................................................................ 375
2. Prosecutorial Discretion ......................................................................................................................... 376
a. Prosecutorial Discretion Defined ........................................................................................................ 376
b. Who May Exercise Prosecutorial Discretion? ...................................................................................... 377
c. Factors to Consider When Exercising Prosecutorial Discretion ............................................................ 377
d. Timing and Rights ............................................................................................................................. 378
e. Procedural Issues Regarding Cases in Proceedings or Where NTA Not Yet Filed with EOIR ................ 378
f. Prior Guidance................................................................................................................................... 379
g. Prohibited Considerations and Procedures........................................................................................... 379
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
X. Removal Procedures, cont’d
T. Removal Hearing, cont’d
2. Prosecutorial Discretion, cont’d
h. Howard Memo................................................................................................................................... 380
i. Prosecutorial Discretion re Victims and Witnesses of Crimes, and Plaintiffs in Civil Rights Suits ......... 381
j. Prosecutorial Discretion re Persons with U.S. Military Service ............................................................ 381
k. Prosecutorial Discretion re Persons with Pending I-130 or Other Petitions/Applications ....................... 381
l. Guidelines Regarding USCIS and Initiating Referrals for NTAs .......................................................... 382
m. Joint Motion to Dismiss for AOS........................................................................................................ 382
n. Decision to Seek Remand from Federal Court to BIA .......................................................................... 382
o. Judicial Review ................................................................................................................................. 383
3. Issuance of NTAs .................................................................................................................................. 383
4. Challenges to NTA ................................................................................................................................ 384
a. After Commencement of Proceedings ................................................................................................ 384
b. Application for NTA Not Based on Prima Facie Case of Deportability ................................................ 384
c. Selective Prosecution ........................................................................................................................ 384
d. NTA Issuance Accompanied by Duress or Lack of Due Process .......................................................... 384
e. Deportability Stated in the Alternative ................................................................................................ 384
f. Res Judicata / Collateral Estoppel ....................................................................................................... 384
g. Procedural Due Process Challenges .................................................................................................... 386
h. Substantive Due Process Challenges ................................................................................................... 386
i. DHS Estopped ................................................................................................................................... 386
j. Claims to Citizenship ......................................................................................................................... 388
k. Respondent Was Citizen at Time of Conviction of Charges Forming Basis of Removal ........................ 391
l. Insufficient Notice of Proceeding or Charge ........................................................................................ 391
m. Temporary Residents Whose Residency Has Not Been Revoked ......................................................... 391
n. Respondent Improperly Charged as Deportable When He Was Inadmissible ........................................ 391
o. DHS Agreement to Terminate Proceeding Because NTA Improvidently Issued .................................... 391
p. NSEERS Violation But Insufficient Evidence of Willfulness ............................................................... 392
q. DHS Agreement to Administratively Close Case and Recharge, Allowing Cancellation of Removal ............. 392
r. NTA Not Issued by Proper Authorities ............................................................................................... 392
s. DHS Violation of Certification Requirements of §239(e) ..................................................................... 392
t. Statutory Basis for Deportation No Longer Effective ........................................................................... 392
u. Unfair Labor Practices ...................................................................................................................... 393
v. Respondent Deceased or Not in U.S.................................................................................................... 393
w. Effect of International Law................................................................................................................. 393
x. Prima Facie Eligibility for TPS or DED ............................................................................................. 393
y. Respondents with Refugee or Asylum Status ...................................................................................... 393
z. Previously Removed Persons.............................................................................................................. 394
aa. Federal Court Review of Motion to Terminate ................................................................................... 394
5. Procedural Rights Before Hearing. ......................................................................................................... 394
a. Applicable Provisions ........................................................................................................................ 394
b. Service of OSC (now NTA) under Former Law................................................................................... 395
c. Ten-Day Notice ................................................................................................................................. 396
d. Initiation of Proceedings in a Particular Location ................................................................................ 396
e. Filing Documents with the Immigration Court .................................................................................... 396
f. Change of Venue ............................................................................................................................... 396
g. Continuances ..................................................................................................................................... 398
h. Explanation of Rights/Apparent Eligibility.......................................................................................... 406
i. Termination of Proceedings................................................................................................................ 407
6. Discovery .............................................................................................................................................. 407
a. Generally........................................................................................................................................... 407
b. Alien (“A”) File ................................................................................................................................. 407
c. FOIA (Freedom of Information Act) ................................................................................................... 407
d. Subpoenas ......................................................................................................................................... 414
e. Depositions or Interrogatories............................................................................................................. 414
f. FBI Records Request ......................................................................................................................... 414
g. Medical Records ................................................................................................................................ 414
h. Jencks Act ......................................................................................................................................... 414
i. Privacy Act........................................................................................................................................ 415
j. Right to Production of Favorable Evidence ......................................................................................... 416
k. Right to Production of Application Where Application Is Renewed in Removal Proceedings ................ 417
l. Classified Information........................................................................................................................ 417
m. Access to Visa Records ...................................................................................................................... 417
n. Prehearing Conference and Pretrial Stipulations .................................................................................. 417
7. Hearings ................................................................................................................................................ 417
a. Generally........................................................................................................................................... 417
b. Pleading Stage and Evidentiary Stage ................................................................................................. 418
c. Procedural Issues at the Hearing............................................................................................................... 418
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Signed: ___________________ Date: ______
CHAPTER 3 • ADMISSION AND REMOVAL
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d. Closed Hearing .................................................................................................................................. 418
e. Right to Counsel ................................................................................................................................ 418
(1) Right to Counsel Before DHS................................................................................................... 420
(2) Ineffective Assistance of Counsel Claim ................................................................................... 420
(3) Waiver of Right to Counsel ...................................................................................................... 431
(4) Right of Counsel to Receive Notice .......................................................................................... 432
(5) Appointed Counsel .................................................................................................................. 432
(6) Transfer of Client Away from Lawyer ...................................................................................... 432
(7) Telephonic Appearance ............................................................................................................ 432
(8) Limited Appearances ............................................................................................................... 433
(9) Monitoring Attorney-Client Communications ........................................................................... 433
(10) Notice to Counsel ..................................................................................................................... 433
(11) Admission/Stipulation by Counsel ............................................................................................. 434
(12) Waiving Client’s Appearance .................................................................................................... 435
(13) Withdrawal of Counsel ............................................................................................................. 435
f. Government Counsel ......................................................................................................................... 435
g. Unauthorized Practice of Law ............................................................................................................ 436
h. Attorney Sanctions............................................................................................................................. 437
i. Criminal Charges Against Counsel ..................................................................................................... 441
j. Right to Present Evidence and Cross-Examine Witnesses .................................................................... 441
(1) Expert Testimony..................................................................................................................... 444
(2) Polygraph Testimony ............................................................................................................... 446
(3) Telephonic and Video Testimony of Expert and Other Witnesses ............................................... 446
(4) Post-Traumatic Stress Disorder................................................................................................. 446
(5) Failure to Call Witness ............................................................................................................. 447
k. Right to Opening Statement and Closing Argument............................................................................. 447
l. Right to Request Relief ...................................................................................................................... 447
m. Security Checks ................................................................................................................................. 447
n. Motions to Suppress........................................................................................................................... 448
o. Privilege Against Self-Incrimination ................................................................................................... 449
p. Miranda Inapplicable ......................................................................................................................... 450
q. Rules of Evidence .............................................................................................................................. 450
(1) Rules relaxed in immigration hearing ........................................................................................ 450
(2) Hearsay Admissible ................................................................................................................. 450
(3) Time for Submission of Evidence ............................................................................................. 454
(4) Authentication ......................................................................................................................... 454
(5) Admission of a Crime .............................................................................................................. 456
(6) Criminal Records Establishing Convictions under 8 C.F.R. §1003.41 ......................................... 456
(7) What Constitutes the Record of Conviction ............................................................................... 457
(8) Presentence Reports ................................................................................................................. 459
(9) Notations Regarding Special Sentencing Reasons or Factors ...................................................... 460
(10) Vacated Convictions ................................................................................................................ 460
(11) Statements in a Brief Should Be Treated as Inconclusive ........................................................... 460
(12) Police/Arrest Reports ............................................................................................................... 460
(13) Abstracts of Judgments ............................................................................................................ 461
(14) Rap Sheets ............................................................................................................................... 461
(15) Interview Statements Taken from Respondent or Any Other Person ........................................... 461
(16) Asylum Applications................................................................................................................ 462
(17) Naturalization Certificates ........................................................................................................ 462
(18) Foreign Law ............................................................................................................................ 462
(19) Presumption of Regularity ........................................................................................................ 463
(20) Offer of Proof .......................................................................................................................... 463
(21) Classified Information .............................................................................................................. 463
(22) Information Under Seal/Protective Order .................................................................................. 464
(23) Battered Spouse ....................................................................................................................... 465
(24) Amnesty Applications .............................................................................................................. 465
(25) Sequestration of Witnesses ....................................................................................................... 465
(26) Evidence May Not Be Submitted After Close of Hearing ........................................................... 465
(27) Failure to Present Evidence Cannot Be Deemed Abandonment of Application............................ 465
(28) Negative Inference from Failure to Produce Evidence ............................................................... 465
r. Burden of Proof ................................................................................................................................. 465
s. Interpretation ..................................................................................................................................... 470
t. Administrative Closure ...................................................................................................................... 472
u. Harmless Error Doctrine .................................................................................................................... 473
v. Immigration Court Record ................................................................................................................. 474
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
X. Removal Procedures, cont’d
T. Removal Hearing, cont’d
7. Hearings, cont’d
w. Presence of Applicant/Respondent at Hearing ..................................................................................... 474
x. Hearings Involving Minors or Incompetents........................................................................................ 475
y. Hearings In Absentia .......................................................................................................................... 478
z. Summary Decision............................................................................................................................. 492
aa. Self-Deportation ................................................................................................................................ 492
bb. Removal by Stipulation ...................................................................................................................... 492
cc. Collateral Estoppel............................................................................................................................. 493
dd. Filing Documents .............................................................................................................................. 493
ee. Fee Procedure .................................................................................................................................... 494
ff. Recusal and Misconduct of IJ ............................................................................................................. 494
gg. Right to Notify Embassy .................................................................................................................... 498
hh. Relation Back Doctrine ...................................................................................................................... 500
8. Summary Removal for Nonresident Aggravated Felons ........................................................................... 500
9. Expedited Removal Proceedings for Persons Serving Prison Sentences .................................................... 501
10. Stipulated Judicial Order of Deportation ................................................................................................. 502
11. Judicial Deportation ............................................................................................................................... 502
12. Terrorist Removal Courts ....................................................................................................................... 503
13. Reinstatement of Removal Order ............................................................................................................ 503
U. Cancellation of Visa ..................................................................................................................................... 507
V. Physical Removal ......................................................................................................................................... 508
1. Four-Step Process in Physical Removal .................................................................................................. 508
2. Due Process Challenges to Designation and Removal .............................................................................. 509
3. Deportation Designation May Be Disregarded ........................................................................................ 509
4. Deportation and Imprisonment ............................................................................................................... 509
5. Deportation and Civil Commitment ........................................................................................................ 510
6. Notification of Deportation .................................................................................................................... 510
7. Sedation of Deportee.............................................................................................................................. 510
8. Mandatory Detention During Removal Period ......................................................................................... 510
9. Time Limitation on Removal.................................................................................................................. 510
10. Timing the 90-Day Period ...................................................................................................................... 513
11. Tolling of 90-Day Period Due to Detainee’s Conduct .............................................................................. 514
12. Detainees Subject to Final Orders of Removal Within the 90-Day Removal Period .................................. 516
13. Final Orders of Removal Where No Significant Likelihood of Removal in Reasonably Foreseeable Future ........ 517
14. Challenges to Regulations ...................................................................................................................... 519
15. Supervised Release and the ISAP Program.............................................................................................. 519
16. Federal Jurisdiction over Detention During Removal Process .................................................................. 520
17. Application of INA §236 or INA §241.................................................................................................... 521
18. Exception to Zadvydas and Clark ........................................................................................................... 522
19. Adam Walsh Act and BOP/ICE Detention .............................................................................................. 522
20. Withholding or Deferral of Removal....................................................................................................... 522
21. Self-Removal ........................................................................................................................................ 522
22. Employment Authorization .................................................................................................................... 522
23. Absconders............................................................................................................................................ 522
W. Stays of Deportation .................................................................................................................................... 524
X. Bilateral or Multilateral Agreements Regarding the Removal Process......................................................... 525
Y. Early Removal of Nonviolent Offenders ...................................................................................................... 525
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CHAPTER 4
FLEEING PERSECUTION: REFUGEES, ASYLEES, AND OTHERS
I. CATEGORIES OF PROTECTION FOR PERSONS FLEEING PERSECUTION
A. Introduction .................................................................................................................................................. 533
B. Sources of Law ............................................................................................................................................. 533
C. Persons Protected Under U.S. Law ............................................................................................................... 535
II. OVERSEAS REFUGEES
A. Definition of Refugee ................................................................................................................................... 536
B. Persecution of Others as Bar to Status .......................................................................................................... 536
C. Normal Flow Refugees ................................................................................................................................. 537
D. Emergency Flow Refugees ........................................................................................................................... 537
E. Designation of Certain Groups for Refugee Protection................................................................................. 538
F. Designation for Refugee Process by Priority ................................................................................................ 538
G. Requesting Review of Denied Refugee Status ............................................................................................. 538
H. Iraqis Employed by U.S. Government in Iraq .............................................................................................. 538
I. North Korean Human Rights Act ................................................................................................................... 538
J. “Bring Them Home Alive Act” ..................................................................................................................... 539
K. Removal of Refugees ................................................................................................................................... 539
L. Spouses and Children of Refugees ................................................................................................................ 539
III. ASYLUM
A. Definition of Asylee ..................................................................................................................................... 539
1. Interdiction on the High Seas ................................................................................................................. 539
2. Nationality and Statelessness .................................................................................................................. 540
3. Persecution ............................................................................................................................................ 540
a. Generally........................................................................................................................................... 540
b. Persecution Must Be from Country of Nationality Unless Stateless ...................................................... 541
c. Permanent or Serious Injury Not Required .......................................................................................... 541
d. Custodial Interrogation....................................................................................................................... 543
e. Rape or Sexual Assault ...................................................................................................................... 543
f. Forced Medical Examination .............................................................................................................. 543
g. Physical Harm or Detention Not Amounting to Persecution ................................................................. 543
h. Persecution Arising from Emotional Trauma....................................................................................... 544
i. Harassment........................................................................................................................................ 544
j. Discrimination ................................................................................................................................... 545
k. Economic Deprivation ....................................................................................................................... 546
l. Stripping Citizenship ......................................................................................................................... 547
m. Conscription by Guerilla Organizations is Not Per Se Persecution ....................................................... 547
n. Civil War, General Conditions ........................................................................................................... 548
o. Laws of General Application .............................................................................................................. 549
p. Prosecution........................................................................................................................................ 549
q. Intent to Harm Distinct from Persecution ............................................................................................ 551
r. Breach of Confidentiality of Asylum .................................................................................................. 551
s. Single Incident Sufficient ................................................................................................................... 552
t. Periodic Persecution .......................................................................................................................... 552
u. Persecution Should be Treated Cumulatively ...................................................................................... 552
4. Government Unable or Unwilling to Control Persecutors ........................................................................ 553
5. On Account of Race, Religion, National Origin, Political Opinion, Membership in Particular Social Group........ 555
a. Generally........................................................................................................................................... 555
b. Persecutor’s Views as an Element....................................................................................................... 555
c. Political Opinion ................................................................................................................................ 555
d. Membership in a Particular Social Group ............................................................................................ 559
e. Mixed-Motive Cases .......................................................................................................................... 567
f. “On Account of” ................................................................................................................................ 569
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III. Asylum, cont’d
B. Past-Persecution Claims ............................................................................................................................... 572
1. Generally .............................................................................................................................................. 572
2. IJ Required to Make a Finding on Past Persecution ................................................................................. 572
3. No Subjective Basis for Past Persecution ................................................................................................ 572
4. Pattern or Practice in Past Persecution Claim .......................................................................................... 573
5. Presumption of Well-Founded Fear ........................................................................................................ 573
6. Past Persecution and Withholding........................................................................................................... 574
7. Rebuttal of Well-Founded Fear Presumption ........................................................................................... 574
a. Generally........................................................................................................................................... 574
b. Standard for Rebuttal ......................................................................................................................... 574
c. Changed Conditions ........................................................................................................................... 575
d. Safe Relocation.................................................................................................................................. 576
e. Safe Relocation vs. Changed Conditions ............................................................................................. 577
f. Cases Where Government Failed to Rebut Past Persecution ................................................................. 577
g. Cases Supporting Rebuttal of Past Persecution ..............................................................................................578
h. Humanitarian Asylum ........................................................................................................................ 579
8. Corroboration ........................................................................................................................................ 580
C. Well-Founded-Fear Claims........................................................................................................................... 581
1. Generally .............................................................................................................................................. 581
2. Persecutor Need Not be Presently Aware of Offending Act ..................................................................... 581
3. Disclosure of Asylum Application as Independent Basis.......................................................................... 582
4. Burden of Proof in Pattern-or-Practice Cases .......................................................................................... 582
5. Burden of Proof, Disfavored Group ........................................................................................................ 583
6. No Well-Founded Fear if Relocation is Reasonable ................................................................................. 583
D. Mandatory Denial of Asylum ....................................................................................................................... 585
1. Persecution of Others ............................................................................................................................. 585
2. Particularly Serious Crime ..................................................................................................................... 585
3. Serious Nonpolitical Crime .................................................................................................................... 585
4. Danger to U.S. Security ......................................................................................................................... 585
5. Terrorism .............................................................................................................................................. 586
6. Firm Resettlement.................................................................................................................................. 586
a. Generally........................................................................................................................................... 586
b. Direct Offer vs. Totality of the Circumstances..................................................................................... 587
c. BIA Framework ................................................................................................................................. 587
d. Burden of Proof ................................................................................................................................. 588
e. Fear in Third Country ........................................................................................................................ 589
f. Parent Status Imputed to Child ........................................................................................................... 589
g. Cases Finding No Resettlement .......................................................................................................... 589
h. Cases Finding Resettlement................................................................................................................ 589
7. Safe Third Country: Canadian-U.S. Agreement ....................................................................................... 589
8. Previous Asylum Application ................................................................................................................. 590
9. One-Year Time Limit ............................................................................................................................ 590
a. Generally........................................................................................................................................... 590
b. Changed Circumstances ..................................................................................................................... 591
c. Extraordinary Circumstances.............................................................................................................. 592
d. Corroboration Not Necessarily Required ............................................................................................. 593
e. Final Order of Removal...................................................................................................................... 593
10. Applications Filed before Apr. 1, 1997 ................................................................................................... 593
11. Unaccompanied Minor Exception........................................................................................................... 593
12. Burden of Proof Regarding Disqualification............................................................................................ 594
13. Judicial Review ..................................................................................................................................... 594
E. Criminal Bars to Asylum .............................................................................................................................. 594
F. Discretionary Grounds for Denial ................................................................................................................. 595
G. Reconsideration of Asylum Denial ............................................................................................................... 596
H. Commonwealth of Northern Mariana Islands (CNMI) ................................................................................. 596
IV. WITHHOLDING OF REMOVAL
A. Generally ...................................................................................................................................................... 597
B. Mandatory Prohibition Against Removal ..................................................................................................... 597
C. Past Persecution and Withholding ................................................................................................................ 597
D. AO Cannot Decide Withholding .................................................................................................................. 597
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E. No Derivative Benefit In Withholding .......................................................................................................... 597
F. Court Must Enter Order of Removal to Grant Withholding .......................................................................... 598
G. Grounds of Disqualification for Withholding ............................................................................................... 598
1. Nazism or Genocide............................................................................................................................... 598
2. Persecution of Others ............................................................................................................................. 598
3. Particularly Serious Crime; Danger to the Community ............................................................................ 598
a. Particularly Serious Crimes ................................................................................................................ 598
b. Not Particularly Serious Crimes ......................................................................................................... 599
c. Aggravated Felony Conviction ........................................................................................................... 600
d. Danger to the Community .................................................................................................................. 601
4. Serious Nonpolitical Crime .................................................................................................................... 601
5. Danger to U.S. Security ......................................................................................................................... 602
6. Burden of Proof ..................................................................................................................................... 603
7. Standard of Proof................................................................................................................................... 603
8. Mandatory Denial .................................................................................................................................. 603
H. Judicial Review of Discretionary Denial ...................................................................................................... 603
I. Effective Dates ............................................................................................................................................... 604
V. CONVENTION AGAINST TORTURE / DEFERRAL OF REMOVAL
A. Generally ...................................................................................................................................................... 604
B. CAT Regulations .......................................................................................................................................... 605
C. Extradition Proceedings ................................................................................................................................ 605
D. Definition of Torture .................................................................................................................................... 606
1. Generally .............................................................................................................................................. 606
2. BIA Definition of Torture ...................................................................................................................... 606
3. DOJ Analysis of Torture Definition ........................................................................................................ 607
4. Excluded Conduct.................................................................................................................................. 608
5. Reason for Torture Need Not be Political ................................................................................................ 608
E. Acquiescence by Government Officials ........................................................................................................ 608
1. Generally .............................................................................................................................................. 608
2. Willful Blindness Standard..................................................................................................................... 609
3. Acting in an Official Capacity ................................................................................................................ 609
4. Physical Custody/Control Not Required.................................................................................................. 609
5. Reporting of Torture to Government Not Required.................................................................................. 610
6. Some Government Action to Stop Torture Does Not Necessarily Bar Claim............................................. 610
7. Cases Finding No Acquiescence ............................................................................................................. 610
F. Burden of Proof: More Likely Than Not ....................................................................................................... 610
1. Generally .............................................................................................................................................. 610
2. Objective Nature of Standard ................................................................................................................. 611
3. Evidence ................................................................................................................................................ 611
4. Cases Where Burden of Proof Was Met on CAT Claim ........................................................................... 612
5. Cases Where Burden of Proof Was Not Met ........................................................................................... 613
6. Burden of Proof and Asylum/Withholding .............................................................................................. 613
7. Standard of Review................................................................................................................................ 613
G. Grant of CAT as Part of Final Order ............................................................................................................ 613
H. Difference Between Asylum/Withholding and Deferral of Removal Under CAT ....................................... 613
I. Termination of Deferral of Removal .............................................................................................................. 613
J. Termination through Diplomatic Assurances Against Torture ...................................................................... 613
K. CAT Claims in Streamlined or Expedited Removal Proceedings ................................................................. 614
L. Application ................................................................................................................................................... 614
M. Administrative Review of CAT Claims ....................................................................................................... 614
N. Judicial Review of CAT Claims ................................................................................................................... 614
VI. PAROLEES
A. Generally ...................................................................................................................................................... 614
B. The Lautenberg Amendment ........................................................................................................................ 615
C. Commonwealth of the Northern Mariana Islands (CNMI) ........................................................................... 615
VII. EXTENDED VOLUNTARY DEPARTURE & DEFERRED ENFORCED DEPARTURE
A. Extended Voluntary Departure (EVD) ......................................................................................................... 615
B. Deferred Enforced Departure (DED) ............................................................................................................ 615
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
VIII. TEMPORARY PROTECTED STATUS (TPS)
A. Generally ...................................................................................................................................................... 616
B. Attributes of TPS .......................................................................................................................................... 616
1. Generally .............................................................................................................................................. 616
2. Status .................................................................................................................................................... 617
C. Eligibility for TPS......................................................................................................................................... 617
1. Identity and Nationality.......................................................................................................................... 617
2. Presence in U.S...................................................................................................................................... 618
3. Must Be Otherwise Admissible, 8 C.F.R. §§244.3, 1244.3....................................................................... 618
4. Must Not Be Firmly Resettled in a Third Country ................................................................................... 618
5. Must Not Be Ineligible Because of 8 C.F.R. §§244.4, 1244.4................................................................... 618
6. Must Register for TPS Within Period Provided by AG ............................................................................ 618
D. Spouse and Children ..................................................................................................................................... 618
E. Denial of TPS................................................................................................................................................ 619
F. Termination / Withdrawal of Status .............................................................................................................. 619
G. Temporary Treatment for Eligible Applicant ........................................................................................................619
H. Application Procedure .................................................................................................................................. 619
1. Required Documents.............................................................................................................................. 619
2. Application Filed During Registration Period with Fee ............................................................................ 619
3. Late Filing ............................................................................................................................................. 619
4. Personal Appearance.............................................................................................................................. 620
5. Re-registration ....................................................................................................................................... 620
6. Fee Waivers .......................................................................................................................................... 620
I. Administrative Closure for Person in Removal Proceedings ......................................................................... 620
J. Administrative and Judicial Review .............................................................................................................. 620
1. AAO May Review Denial of TPS ........................................................................................................... 620
2. Employment Authorization .................................................................................................................... 621
3. Limitations on Review ........................................................................................................................... 621
K. Confidentiality .............................................................................................................................................. 621
L. Special Adjustment Program......................................................................................................................... 621
M. Salvadorans and Guatemalans ..................................................................................................................... 621
N. TPS for Nationals of Somalia ....................................................................................................................... 622
O. TPS for Nationals of Sudan .......................................................................................................................... 622
P. TPS for Nationals of South Sudan ................................................................................................................ 622
Q. TPS for Hondurans and Nicaraguans............................................................................................................ 622
R. TPS for Haitians ........................................................................................................................................... 622
S. TPS For Syrians ............................................................................................................................................ 623
IX. EXTRADITION OF PERSONS FEARING PERSECUTION OR TORTURE....................................... 623
X. SUBSTANTIVE DUE PROCESS .................................................................................................................. 624
XI. THE APPLICATION PROCESS
A. Processing of Refugees................................................................................................................................. 624
1. Annual Refugee Quotas ......................................................................................................................... 624
2. Refugee Requirements for Approval ....................................................................................................... 624
3. Categories of Inadmissibility .................................................................................................................. 625
4. Ineligibility Due to Firm Resettlement .................................................................................................... 625
5. Ineligibility Due to Immediate Relative or Special Immigrant Status ........................................................ 625
6. Admission to the U.S. ............................................................................................................................ 625
7. Admission of Refugees by AG ............................................................................................................... 625
8. Termination of Refugee Status ............................................................................................................... 625
9. Removal Proceedings Against Refugee ................................................................................................... 626
10. Spouse and Children of Refugees ........................................................................................................... 626
B. Applying for Asylum, Withholding of Removal, and Protection Under CAT .............................................. 626
1. Establishment of Procedures................................................................................................................... 626
2. Effective Dates ...................................................................................................................................... 626
3. Asylum at the Border ............................................................................................................................. 626
4. Asylum, Withholding, and CAT Relief Before the Asylum Officer .......................................................... 627
a. Processing the Asylum Application .................................................................................................... 627
b. Consequences of Filing Asylum Application ....................................................................................... 627
c. Consequences of Making False Statement in Asylum Interview ........................................................... 631
d. Confidentiality ................................................................................................................................... 631
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531
e. Nonimmigrant Status and Asylum Application.................................................................................... 631
f. Asylum Offices.................................................................................................................................. 631
g. Withdrawal of Asylum Application .................................................................................................... 631
h. Asylum Interview .............................................................................................................................. 631
i. Jurisdiction and Referral to IJ by AO .................................................................................................. 633
j. Withholding of Removal and CAT Applications before AO................................................................. 633
5. AO’s Criteria for Deciding Asylum Claims ............................................................................................. 633
6. AO and Credible-Fear Determinations .................................................................................................... 635
7. AO and Reasonable-Fear Determination for Withholding of Removal...................................................... 636
8. Asylum, Withholding [INA §241(b)(3)], and CAT Claims Before the IJ .................................................. 636
a. Generally........................................................................................................................................... 636
b. IJ Advisement Regarding Frivolous Applications ................................................................................ 636
c. Differences Between Asylum and Withholding ................................................................................... 637
d. Difference Between Asylum, Withholding, and Deferral Under CAT................................................... 637
e. Role of the Department of State .......................................................................................................... 640
f. Hearings and Procedural Issues on Asylum and Other Claims .............................................................. 640
g. Equal Treatment in Adjudication of Asylum Claims ............................................................................ 641
9. Special Limited Hearings on Asylum and Withholding............................................................................ 641
10. Children Applying for Asylum ............................................................................................................... 642
11. Parent Cannot Apply Derivatively Through Their Child .......................................................................... 642
12. Derivative Benefits Under Withholding .................................................................................................. 643
XII. REPRESENTING THE ASYLUM, CAT, and §241(b)(3) APPLICANT
A. Prehearing and Premerits Representation ..................................................................................................... 643
1. Generally .............................................................................................................................................. 643
2. Access to the Client ............................................................................................................................... 643
3. Right to Counsel .................................................................................................................................... 644
4. Transfer of Detainee .............................................................................................................................. 644
5. Duty to Asylum Seekers in Custody ....................................................................................................... 644
6. Change of Venue ................................................................................................................................... 645
7. Right to Apply for Asylum ..................................................................................................................... 645
8. Right to Release from Detention ............................................................................................................. 646
9. The Right to Work ................................................................................................................................. 647
a. Generally........................................................................................................................................... 647
b. The EAD Clock ................................................................................................................................. 647
c. Tolling of the EAD Clock .................................................................................................................. 648
d. Immigration Court Filing ................................................................................................................... 648
e. Change of Venue Requests ................................................................................................................. 648
f. Aggravated Felons ............................................................................................................................. 648
g. Failure to Appear ............................................................................................................................... 648
h. Procedures Regarding Asylum Clock.................................................................................................. 648
i. Renewal/Termination of EAD ............................................................................................................ 649
j. Lost I-589.......................................................................................................................................... 649
k. Pre–Jan. 4, 1995 Applications ............................................................................................................ 649
10. The Right to Travel ................................................................................................................................ 649
11. Security Procedures in Asylum Applications ........................................................................................... 649
12. Disclosure of Application to Third Parties............................................................................................... 650
B. The Hearing Process ..................................................................................................................................... 650
1. Generally .............................................................................................................................................. 650
2. Proving the Asylum, Withholding, or CAT Claim ................................................................................... 650
a. Burden of Proof ................................................................................................................................. 650
b. Standard of Persuasion for Withholding .............................................................................................. 651
c. Standard of Persuasion for Asylum ..................................................................................................... 651
d. Relationship Between Standards for Withholding and Asylum............................................................. 652
e. Nature of Proof .................................................................................................................................. 653
f. Documentary Evidence ...................................................................................................................... 656
g. Testimonial Evidence......................................................................................................................... 675
h. Types of Evidence ............................................................................................................................. 707
i. Classified Information........................................................................................................................ 729
j. Information Under Seal/Protective Order ............................................................................................ 729
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
XII. Representing the Asylum, CAT, and §241(b)(3) Applicant, cont’d
C. Post-Trial Relief ........................................................................................................................................... 729
1. Motions to Reopen................................................................................................................................. 729
a. Generally........................................................................................................................................... 729
b. Exceptions to Time and Numerical Limitations on Motions to Reopen ................................................. 730
c. Motions Must Comply with Regulations ............................................................................................. 730
d. Grounds for Denial of Motion to Reopen ............................................................................................ 730
e. Motions to Reopen for Withholding.................................................................................................... 731
f. No Prima Facie Case ......................................................................................................................... 731
g. Prima Facie Case .............................................................................................................................. 731
h. No Automatic Stay of Removal .......................................................................................................... 732
i. Post-Departure Motions ..................................................................................................................... 732
j. Scope of Review of Reopened Case .................................................................................................... 732
k. Pro se Litigant and Motions to Reopen ............................................................................................... 732
2. Appeals to BIA ...................................................................................................................................... 732
3. Motions to Remand................................................................................................................................ 733
4. Judicial Review ..................................................................................................................................... 733
a. Generally........................................................................................................................................... 733
b. No Judicial Review of Certain Claims ................................................................................................ 734
c. Stays of Removal During Judicial Review .......................................................................................... 734
d. Old or Stale Administrative Record .................................................................................................... 734
e. Standard of Review for Motions to Reopen ......................................................................................... 734
f. Standard of Review of Withholding vs. Asylum .................................................................................. 735
g. Review of Factual Determinations under Substantial-Evidence Test..................................................... 735
h. Cases Reversing IJ or BIA’s Denial of Asylum/Withholding/CAT under Elias-Zacarias Standard ........ 736
i. Cases Upholding Denial of Asylum/Withholding/CAT under Elias-Zacarias Standard ......................... 738
j. Cases Not Applying Elias-Zacarias in Reversing IJ/BIA ..................................................................... 742
k. Credibility Assessments under Substantial-Evidence Standard ............................................................. 743
l. Manifestly-Contrary-to-Law Standard ................................................................................................ 744
m. Application of Incorrect Standard ....................................................................................................... 744
n. Legal Questions Reviewed De Novo................................................................................................... 744
o. Pattern or Practice Cases .................................................................................................................... 745
p. Remands and INS v. Ventura .............................................................................................................. 745
q. Judicial Review of CAT Claims ......................................................................................................... 745
r. Judicial Review of Corroboration ....................................................................................................... 745
XIII. ASYLUM GRANTS AND REVOCATION
A. Asylum Grant ............................................................................................................................................... 746
1. Spouse and Children of Asylee ............................................................................................................... 746
2. Withholding Does Not Result In Derivative Benefits ............................................................................... 746
3. Immediate Employment ......................................................................................................................... 746
4. Refugee Travel Document...................................................................................................................... 747
B. Revocation/Termination of Asylum/Withholding......................................................................................... 747
C. Revocation of Withholding ........................................................................................................................... 748
XIV. ADJUSTMENT OF STATUS AND SPECIAL LEGISLATION
A. Generally ...................................................................................................................................................... 748
1. Eligibility and Application Process, Generally ........................................................................................ 748
2. Parolee Adjustment ................................................................................................................................ 748
3. Cuban Refugee Adjustment Act ............................................................................................................. 748
B. Adjustment of Status..................................................................................................................................... 751
1. Refugees ................................................................................................................................................ 751
2. Asylees .................................................................................................................................................. 752
3. Procedures............................................................................................................................................. 752
4. Travel ................................................................................................................................................... 753
5. One-Year Retroactive Date .................................................................................................................... 753
6. Effect of Grant....................................................................................................................................... 753
7. Removal of LPRs Who Held Asylum or Refugee Status .......................................................................... 753
XV. REFERENCE MATERIAL AND LEGISLATIVE HISTORY ............................................................... 753
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CHAPTER 5
NONIMMIGRANT VISAS
I. DISTINGUISHING IMMIGRANTS FROM NONIMMIGRANTS
A. In General ..................................................................................................................................................... 759
B. Nonimmigrants: General Characteristics ...................................................................................................... 759
II. PROCEDURES
A. Consular and Immigration Inspection........................................................................................................... 761
B. Visa Processing of NIVs ............................................................................................................................... 763
C. INA §221(g) Denial Procedures ................................................................................................................... 766
D. Validity of Issued Visa ................................................................................................................................. 766
E. INA §222(g) / Overstays ............................................................................................................................... 766
F. Revocation of Visas ...................................................................................................................................... 768
G. Disclosure of Records................................................................................................................................... 769
H. Revalidation/Reissuance of Visas ................................................................................................................. 769
I. Returning Petitions to USCIS / Reconsideration ............................................................................................ 769
J. Electronic Filing (E-Filing)............................................................................................................................ 770
K. E-Notification ............................................................................................................................................... 770
III. ADMISSION TO U.S.
A. Visa Does Not Guarantee Admission ........................................................................................................... 770
B. Must Present to CBP an Unexpired Visa and Passport Valid for 6 Months .................................................. 770
C. US-VISIT ..................................................................................................................................................... 771
D. Advanced Passenger Information System (APIS) ........................................................................................ 772
E. Arrival/Departure Information System (ADIS)............................................................................................. 772
F. Secure Flight Program................................................................................................................................... 772
G. Electronic System for Travel Authorization (ESTA).................................................................................... 772
H. Western Hemisphere Travel Initiative (WHTI) ............................................................................................ 772
I. DHS-TRIP: Challenging a Lookout and Secure Flight Determination .......................................................... 773
J. Cannot Have Intent to Enter for Purpose Different from that Permitted Under Visa ..................................... 773
K. If Admitted at Border ................................................................................................................................... 773
L. Time of Initial Admission Provided at 8 C.F.R. §214.2 ................................................................................ 773
M. Departure Validation / Recording Departure ............................................................................................... 773
N. Criminal Activity in U.S. .............................................................................................................................. 773
O. Extension of Stay .......................................................................................................................................... 773
P. Change of Status ........................................................................................................................................... 774
Q. Maintenance of Present Status ...................................................................................................................... 776
R. Adjudication of Petitions .............................................................................................................................. 777
1. Premium Processing .............................................................................................................................. 777
2. Expedited Processing ............................................................................................................................. 777
3. USCIS Forms Have the Force of Law ..................................................................................................... 777
4. Questioning Prior Determinations........................................................................................................... 777
5. Request for Evidence (RFEs) & Notice of Intent to Deny (NOIDs) .......................................................... 777
6. Administrative Error Expedited Case Processing ..................................................................................... 778
7. Validation Instrument for Business Enterprises (VIBE) ........................................................................... 778
8. Copies vs. Originals ............................................................................................................................... 779
9. Considering Government Error or Delay and Compelling Circumstances ................................................. 779
S. Employment of Nonimmigrants .................................................................................................................... 779
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
IV. VISA-EXEMPT PERSONS
A. Canada and Bermuda .................................................................................................................................... 780
B. Mexico .......................................................................................................................................................... 780
C. North American Free Trade Agreement (NAFTA) ....................................................................................... 781
1. Visitors for Business .............................................................................................................................. 781
2. L Petitions ............................................................................................................................................. 781
3. Professionals (TNs) ............................................................................................................................... 781
4. Procedures............................................................................................................................................. 783
5. TN Dependents...................................................................................................................................... 783
6. Domestic Servants ................................................................................................................................. 783
7. In-State Tuition ..................................................................................................................................... 783
8. Doctrine of Dual Intent Inapplicable to TN ............................................................................................. 784
9. E Visas .................................................................................................................................................. 784
10. Strikes and Lockouts .............................................................................................................................. 784
D. Groups Exempt from Visa Requirement by Statute, Treaty, or Compact ..................................................... 784
E. Automatic Revalidation / Extension of Visa Validity ................................................................................... 784
F. Visa Waiver Program (VWP)........................................................................................................................ 785
1. Generally .............................................................................................................................................. 785
2. Disqualification ..................................................................................................................................... 785
3. Status .................................................................................................................................................... 785
4. Documentation ...................................................................................................................................... 785
5. Financial Solvency; Domicile Abroad..................................................................................................... 786
6. Electronic System for Travel Authorization (ESTA)................................................................................ 786
7. US-VISIT Program / Machine Readable Passports .................................................................................. 786
8. Ineligibility for Change or Extension of Status ........................................................................................ 786
9. Adjustment of Status .............................................................................................................................. 786
10. No Removal Hearing/Waiver of Rights................................................................................................... 787
11. Asylum ................................................................................................................................................. 787
12. Challenges to VWP................................................................................................................................ 788
13. Penalty Against Carrier .......................................................................................................................... 788
G. Commonwealth of Northern Mariana Islands (CNMI) and Guam Visa Waiver Program ............................ 788
V. VISAS FOR TEMPORARY VISITORS (B-1 & B-2)
A. Criteria.......................................................................................................................................................... 789
B. Must Demonstrate Pursuant to 22 C.F.R. §41.31(a): .................................................................................... 789
C. Time Limitation ............................................................................................................................................ 789
D. B-1 / B-2 Engaging in Student Studies ......................................................................................................... 789
E. B-1 Visitors for Business .............................................................................................................................. 789
F. B-2 Visitors for Pleasure ............................................................................................................................... 793
G. Out of Status ................................................................................................................................................. 794
VI. VISAS FOR STUDENTS AND TRAINEES (F, M, J, H-3)
A. SEVIS/Data Collection ................................................................................................................................. 794
B. Academic Students (F Visas) ........................................................................................................................ 794
1. Criteria .................................................................................................................................................. 794
2. Additional Criteria ................................................................................................................................. 795
3. Commuter Students ............................................................................................................................... 796
4. Consular Procedure ................................................................................................................................ 796
5. Medical Insurance.................................................................................................................................. 797
6. Duration of Status (D/S)......................................................................................................................... 797
7. Transfers ............................................................................................................................................... 798
8. Withdrawing from Educational Institution .............................................................................................. 798
9. Employment .......................................................................................................................................... 798
10. Out-of-Status Problem ........................................................................................................................... 802
11. Change of Status from B-1/B-2 .............................................................................................................. 803
12. Overstays .............................................................................................................................................. 803
13. Reinstatement ........................................................................................................................................ 803
14. Extensions of Stay ................................................................................................................................. 803
15. Family Members.................................................................................................................................... 803
16. Name and Address Registration.............................................................................................................. 804
17. School Certification ............................................................................................................................... 804
18. In-State Tuition and Undocumented Status ............................................................................................. 804
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CHAPTER 5 • NONIMMIGRANT VISAS
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757
C. Vocational Students (M Visas) ..................................................................................................................... 804
1. Full Course Defined ............................................................................................................................... 804
2. Canadian and Mexican Commuters ........................................................................................................ 805
3. Consular Procedure ................................................................................................................................ 805
4. Duration ................................................................................................................................................ 805
5. Extension of Stay ................................................................................................................................... 805
6. Grace Period.......................................................................................................................................... 805
7. Change of Status from B-1/B-2 .............................................................................................................. 805
8. Family Members.................................................................................................................................... 805
9. Reinstatement ........................................................................................................................................ 805
10. Differences from F-l .............................................................................................................................. 806
D. Exchange Visitors (J Visas) .......................................................................................................................... 806
1. Criteria .................................................................................................................................................. 806
2. Issuance by Consulates .......................................................................................................................... 806
3. Residence Requirement .......................................................................................................................... 807
4. Trainee and Internship Programs ............................................................................................................ 807
5. College and University Internship Programs ........................................................................................... 808
6. Secondary School Students .................................................................................................................... 808
7. Au Pair Program .................................................................................................................................... 808
8. Teacher Program ................................................................................................................................... 808
9. Pilot Program for New Teachers ............................................................................................................. 808
10. Summer Work and Travel Program ........................................................................................................ 809
11. Special Country Programs ...................................................................................................................... 809
12. B-1 in Lieu of J-1 .................................................................................................................................. 810
13. Two-Year Foreign Residence Requirement ............................................................................................. 810
14. Waiver of 2-Year Requirement ............................................................................................................... 810
15. Clarification of Other Issues Relating to the Waiver ................................................................................ 816
16. General Procedures for Js ....................................................................................................................... 817
17. Spouses and Children (J-2s) ................................................................................................................... 820
18. Exchange Visitor Program Designation, Suspension, and Revocation Board ............................................ 820
E. Trainees (H-3 Visas) ..................................................................................................................................... 821
VII. VISAS FOR BUSINESS PERSONNEL (H, L, E, I, O, P, Q, and R VISAS)
A. Characteristics .............................................................................................................................................. 822
B. H Visas ......................................................................................................................................................... 823
C. H-1B Visas ................................................................................................................................................... 823
1. Criteria .................................................................................................................................................. 823
2. Analyses and Definitions ....................................................................................................................... 830
3. The Labor Condition Application (LCA) ................................................................................................ 836
a. Generally........................................................................................................................................... 836
b. FEIN ................................................................................................................................................. 836
c. Required Wage .................................................................................................................................. 836
d. Prevailing Wage Determination (PWD) .............................................................................................. 839
e. Working Conditions ........................................................................................................................... 843
f. No Strike or Lockout ......................................................................................................................... 843
g. Notice of LCA ................................................................................................................................... 843
h. Employer........................................................................................................................................... 843
i. Procedure .......................................................................................................................................... 843
j. LCA Complaints ................................................................................................................................ 846
k. Penalties/Sanctions ............................................................................................................................ 847
l. Whistleblower Provision .................................................................................................................... 850
m. Attorney’s fees .................................................................................................................................. 851
n. Attorney Sanctions............................................................................................................................. 851
o. Hearing ............................................................................................................................................. 851
p. Review of ALJ Determination and Federal Court Action ..................................................................... 852
q. Dependent Employers and Employers Who Willfully Violate Attestation Provisions ............................ 852
4. H-1B Procedures ................................................................................................................................... 854
5. Admission and Extension for H-1B ........................................................................................................ 857
6. Family Members ........................................................................................................................................... 860
7. Travel and Employment While AOS is Pending ...................................................................................... 861
8. Investigation .......................................................................................................................................... 861
D. Fashion Models ............................................................................................................................................ 861
E. Defense Department Visas for Cooperative Research, Development, and Co-production............................ 861
F. Nurses ........................................................................................................................................................... 862
G. Physicians ..................................................................................................................................................... 865
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
H. Fast-Track H-1B1 Visas ............................................................................................................................... 867
I. H-2A and H-2B Visas .................................................................................................................................... 868
J. O Visas .......................................................................................................................................................... 892
K. P Visas .......................................................................................................................................................... 897
L. Intracompany Transferees (L Visas) ............................................................................................................. 902
1. Definition .............................................................................................................................................. 902
2. One-Year Employment Requirement ...................................................................................................... 903
3. “Employee” ........................................................................................................................................... 904
4. Temporariness ....................................................................................................................................... 904
5. Qualifying Organization ......................................................................................................................... 905
6. Rendering services to same employer ..................................................................................................... 906
7. Must Work in Managerial, Executive (L-1A), or Specialized Knowledge Capacity (L-1B) ....................... 906
8. Specialized Knowledge .......................................................................................................................... 908
9. Nature/Size of Company ........................................................................................................................ 909
10. New Office ............................................................................................................................................ 910
11. Procedural Aspects ................................................................................................................................ 910
M. Treaty Traders/Investors (E-1 / E-2 Visas) .................................................................................................. 914
N. E-3 Visas (Australian Special Occupation) .................................................................................................. 921
O. Q Visas (Cultural Exchange Programs) ........................................................................................................ 922
P. Religious Workers (R Visas)......................................................................................................................... 924
Q. I Visas for Representatives of the Media ...................................................................................................... 926
R. CNMI Transitional Workers ......................................................................................................................... 927
VIII. DIPLOMATIC & INTERNATIONAL ORGANIZATION ALIENS (A, G, C-2/C-3)
A. Diplomatic/Official Visas Distinguished ...................................................................................................... 928
B. A Visas ......................................................................................................................................................... 929
C. G Visas ......................................................................................................................................................... 931
D. NATO ........................................................................................................................................................... 933
E. U.N. Transits (C-2 Visa) ............................................................................................................................... 933
F. Foreign Government Transits (C-3 Visa) ...................................................................................................... 933
IX. FAMILY-RELATED VISAS FOR FIANCÉES, SPOUSES, AND CHILDREN OF USCS OR LPRs
A. K-1 Visas (Fiancé(e)s) .................................................................................................................................. 933
B. K-3 Visas (Spouses of U.S. Citizens) ........................................................................................................... 938
C. V Visas (Spouse/Child of LPR) .................................................................................................................... 940
X. TRANSIT, CREWMEN, AND NATO/G-4 FAMILY (C, D, N)
A. C Visas (Transits) and TWOV ..................................................................................................................... 942
B. D Visas (Crewmen) ...................................................................................................................................... 944
C. N Visas ......................................................................................................................................................... 945
XI. LAW ENFORCEMENT VISAS (S, T, U)
A. S Visas (Witnesses) ...................................................................................................................................... 945
B. T Visas (Trafficking Victims) ....................................................................................................................... 946
C. U Visas (Crime Victims) .............................................................................................................................. 952
1. Eligibility .............................................................................................................................................. 952
2. Procedure/Application Process ............................................................................................................... 953
3. Cap on U-1 Status .................................................................................................................................. 954
4. Approval of the Petition ......................................................................................................................... 954
5. Employment Authorization .................................................................................................................... 955
6. Admission and Duration of Status .......................................................................................................... 955
7. Visa Processing Abroad ......................................................................................................................... 955
8. Death of Principal U .............................................................................................................................. 955
9. Family Members.................................................................................................................................... 955
10. Nondisclosure and Prohibited Use .......................................................................................................... 956
11. Grounds of Inadmissibility ..................................................................................................................... 956
12. Revocation of Petition ............................................................................................................................ 956
13. Removal Proceedings............................................................................................................................. 956
14. Change of Status/Extension of Status ...................................................................................................... 956
15. AOS Generally ...................................................................................................................................... 957
16. Prohibition Against Petitioning for Abusers ............................................................................................ 959
17. U Nonimmigrant Interim Relief Program ................................................................................................ 959
18. Resources .............................................................................................................................................. 959
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CHAPTER 6
PERMANENT RESIDENT STATUS
I. GENERAL
A. Definition ..................................................................................................................................................... 965
B. Intent to Keep U.S. Permanent Residence .................................................................................................... 965
C. What Lawful Permanent Residence Does Not Provide................................................................................. 965
D. “Green Card” ................................................................................................................................................ 965
E. Process for Obtaining Lawful Permanent Residence .................................................................................... 965
II. IMMEDIATE RELATIVES (IRs) ................................................................................................................ 967
III. WIDOW(ER)S ............................................................................................................................................... 967
IV. VAWA PETITIONERS (BATTERED SPOUSES, CHILDREN, OR PARENTS)
A. Legislative History ....................................................................................................................................... 969
B. VAWA Self-Petitioner Defined .................................................................................................................... 969
C. Eligibility ...................................................................................................................................................... 969
D. Aged-Out Children ....................................................................................................................................... 970
E. Self-Petitioning Abused Parent ..................................................................................................................... 970
F. Good Moral Character (GMC) ...................................................................................................................... 971
G. Employment Authorization/Deferred Action................................................................................................ 971
H. Prohibition on Petitioning for an Abuser ...................................................................................................... 971
I. Evidence in VAWA Cases ............................................................................................................................. 971
J. Confidentiality of Information ....................................................................................................................... 971
K. Three- and Ten-Year Bars ............................................................................................................................ 972
L. Others Grounds of Inadmissibility and Waivers ........................................................................................... 972
M. AOS and EWI .............................................................................................................................................. 972
N. VWP and VAWA ......................................................................................................................................... 972
O. VAWA Revocations ..................................................................................................................................... 972
P. Initiating Removal Proceedings .................................................................................................................... 972
Q. Motions to Reopen (MTR) Proceedings ....................................................................................................... 972
R. Naturalization and VAWA ........................................................................................................................... 972
S. Administrative and Judicial Review .............................................................................................................. 973
V. SPOUSE, PARENT, OR CHILD OF MEMBER OF ARMED FORCES WHO DIED IN COMBAT
A. USC Service Member ................................................................................................................................... 973
B. Posthumous USC Service Member ............................................................................................................... 973
C. Posthumous USC Service Member Citizenship Under INA §329A ............................................................. 973
D. Definitions .................................................................................................................................................... 973
VI. DEFINITIONS OF FAMILY MEMBERS
A. Child ............................................................................................................................................................. 974
1. Definition Is Basis for Definitions of Parent, Sibling, and Son or Daughter .............................................. 974
2. Definition under INA §101(b)(1) .................................................................................................................. 974
3. Step-Children ........................................................................................................................................ 974
4. Children Born In- or Out-of-Wedlock ..................................................................................................... 975
5. Legitimated Children ............................................................................................................................. 975
6. Adopted Children .................................................................................................................................. 976
7. Orphans................................................................................................................................................. 979
8. Procedures for Adoption in Hague Convention Countries for Orphans and Nonorphan Adoptions ............. 980
9. No Adjustment ...................................................................................................................................... 983
10. Citizenship Immediately Available ......................................................................................................... 983
B. Parents .......................................................................................................................................................... 983
C. Brothers and Sisters ...................................................................................................................................... 983
961
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
D. Spouses and Sham Marriages ....................................................................................................................... 983
1. Immigration Marriage Fraud Amendments Act of 1986 (IMFA) .............................................................. 983
2. Validity of the Marriage ......................................................................................................................... 994
3. Transgender Marriages........................................................................................................................... 994
4. Same-Sex Couples ................................................................................................................................. 995
5. Voidable Marriages Recognized ............................................................................................................. 995
6. Common Law Marriages ........................................................................................................................ 995
7. Religious Marriages ............................................................................................................................... 996
8. Marriage Cannot be Contrary to Public Policy ........................................................................................ 996
9. Prior Divorce Must Be Valid .................................................................................................................. 996
10. Criminal Proceedings ............................................................................................................................. 997
11. Proxy Marriages .................................................................................................................................... 997
12. Viability of the Marriage ........................................................................................................................ 997
13. Battered Spouses ................................................................................................................................... 999
14. Divorce Prior to Approval May Not Defeat AOS .................................................................................... 999
15. Sham Marriages..................................................................................................................................... 999
16. Sham Divorces .................................................................................................................................... 1001
17. Relief from Fraudulent Marriages ......................................................................................................... 1001
18. Subsequent IV Petitions ....................................................................................................................... 1001
19. Potential Criminal Violations ............................................................................................................... 1003
20. Civil Actions ....................................................................................................................................... 1003
21. Marriages Abroad ................................................................................................................................ 1003
22. Marriage in Detention .......................................................................................................................... 1003
VII. NUMERICAL LIMITATION (PREFERENCE) IMMIGRANTS
A. Maximum Divided into Categories............................................................................................................. 1004
B. Preference System ...................................................................................................................................... 1004
C. Foreign State Chargeability ........................................................................................................................ 1005
D. Priority Dates .............................................................................................................................................. 1006
1. Family-Preference Petitions ................................................................................................................. 1006
2. Conversion of Family-Based Petitions and Retention of Priority Dates................................................... 1006
3. Priority Dates for Children Not Eligible for CSPA in Regard to All Petitions ......................................... 1007
4. Battered Spouses/Children ................................................................................................................... 1008
5. Western Hemisphere Priority Dates / Silva Letters ................................................................................ 1008
6. Employment-Based Priority Dates ........................................................................................................ 1008
7. Derivative Beneficiaries ....................................................................................................................... 1008
8. Loss of Priority .................................................................................................................................... 1013
E. Presumption Against Admissibility ............................................................................................................ 1014
F. Oversubscribed Countries ........................................................................................................................... 1014
VIII. DIVERSITY IMMIGRANTS
A. Number Available ...................................................................................................................................... 1014
B. Regions ....................................................................................................................................................... 1014
C. Eligibility .................................................................................................................................................... 1014
D. Procedure .................................................................................................................................................... 1015
E. Applicants Must Be Selected Randomly ..................................................................................................... 1015
F. Visa Must be Issued within DV Fiscal Year ............................................................................................... 1015
IX. NICARAGUAN AND CUBAN ADJUSTMENT—NACARA ................................................................. 1016
X. HAITIAN REFUGEE IMMIGRATION FAIRNESS ACT OF 1998 (HRIFA) ....................................... 1016
XI. VIETNAM, CAMBODIA AND LAOS ADJUSTMENT ACT ................................................................ 1018
XII. USA PATRIOT ACT
A. Generally .................................................................................................................................................... 1019
B. Special Immigrant Status ............................................................................................................................ 1019
C. Protection for NIVs..................................................................................................................................... 1019
D. Self-Petitions for LPR Status ...................................................................................................................... 1020
E. Aged-Out Children...................................................................................................................................... 1020
F. Administrative Relief .................................................................................................................................. 1020
G. Evidence/Documentation of Death, Disability, or Loss of Employment .................................................... 1021
H. Exception for Perpetrators .......................................................................................................................... 1021
I. Definition of Terrorist Activity .................................................................................................................... 1021
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CHAPTER 6 • PERMANENT RESIDENT STATUS
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963
XIII. HELP HAITI ACT OF 2010 ................................................................................................................... 1021
XIV. PETITION PROCESS
A. Persons Precluded from Petitioning ............................................................................................................ 1021
B. Immediate Relatives; 1st to 4th Family Preferences ................................................................................... 1022
C. VAWA Petitioners (Battered Spouses or Children) .................................................................................... 1022
D. Widow(er)s ................................................................................................................................................. 1022
E. Family of Member of Armed Forces Killed in Combat .............................................................................. 1023
F. Death of Petitioner ...................................................................................................................................... 1023
G. Venue for Filing ......................................................................................................................................... 1024
H. Procedures .................................................................................................................................................. 1024
1. Burden of Proof is on Petitioner ........................................................................................................... 1024
2. Withdrawal of Petition ......................................................................................................................... 1025
3. Copies vs. Originals ............................................................................................................................. 1025
4. Waiving Submission of Records ........................................................................................................... 1025
5. Unavailability of Records ..................................................................................................................... 1025
6. USCIS Forms Have Force of Law ........................................................................................................ 1025
7. Birth Certificates ................................................................................................................................. 1025
8. Proof of U.S. Citizenship ..................................................................................................................... 1026
9. Evidence in Cases Involving Battery and Extreme Cruelty..................................................................... 1026
10. Fees .................................................................................................................................................... 1026
11. Refunds ............................................................................................................................................... 1026
12. Expedited Processing of Cases ............................................................................................................. 1026
13. Beneficiary Must be Eligible at Time Petition Is Filed ........................................................................... 1026
14. Disclosure of Petitioner’s Criminal History to Beneficiary..................................................................... 1027
15. Pending Investigation........................................................................................................................... 1027
16. Request for Evidence (RFE) or Notice of Intent to Deny (NOID)........................................................... 1027
17. Inadmissibility ..................................................................................................................................... 1027
18. Confidential Evidence .......................................................................................................................... 1027
19. Government Error or Delay and Compelling Circumstances .................................................................. 1027
20. InfoPass ............................................................................................................................................... 1028
I. What Does Approval Mean? ........................................................................................................................ 1028
J. Denial of Petition ......................................................................................................................................... 1028
K. Revocation of Approved Petition ............................................................................................................... 1029
L. Termination, Return or Revocation by Department of State ....................................................................... 1030
M. Judicial Review of Petition; IV Revocation ............................................................................................... 1030
XV. DIFFERENCES BETWEEN VISA PROCESSING & ADJUSTMENT OF STATUS
A. Generally .................................................................................................................................................... 1031
B. Immigrant Visa Processing at a Consular Post ........................................................................................... 1031
C. Adjustment of Status under §245 ................................................................................................................ 1035
1. Requirements under Regular Adjustment Procedures............................................................................. 1035
a. Inspected and Admitted or Paroled. .................................................................................................. 1035
b. Lawfully in U.S., except for IRs, battered spouses and children, and Certain Special Immigrants ........ 1036
c. Visa Number Immediately Available ................................................................................................ 1036
d. Applicant Makes Adjustment Application ......................................................................................... 1037
e. Medical and Security Clearances ...................................................................................................... 1037
f. Must Be Eligible and Otherwise Admissible ..................................................................................... 1037
g. Deportability Generally Does Not Bar Adjustment ............................................................................ 1044
h. Security Check/Name Check ............................................................................................................ 1044
i. Battered Spouse and Children........................................................................................................... 1044
j. Immigrant Visa Must Be Immediately Available ............................................................................... 1044
k. USCIS Discretion to Deny Adjustment. ............................................................................................ 1044
l. Rescheduling Adjustment Interview and Denial for Abandonment ..................................................... 1045
m. Transferring Adjustment to New Family– or Employment-Based Immigrant Visa Petition.................. 1045
n. Status at Time of Filing .................................................................................................................... 1045
o. AOS Is Not An Entry ....................................................................................................................... 1045
p. AOS in Removal Proceedings .......................................................................................................... 1046
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964
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
XV.C. Adjustment of Status under §245, cont’d
2. Special Adjustment Provision: Section 245(i) ....................................................................................... 1048
a. Generally......................................................................................................................................... 1048
b. Section 245(i) Only Waives §§245(a) & (c) ...................................................................................... 1048
c. Section 245(k) Does Not Bar Adjustment under §245(i) ..................................................................... 1049
d. Other Sections Require Waivers Before Use of §245(i) ..................................................................... 1049
e. Section 245(i) Does Not Waive Inadmissibility ................................................................................. 1049
f. Proving Physical Presence on Dec. 21, 2000 ..................................................................................... 1049
g. Grandfathered Petitions .................................................................................................................... 1050
h. Section 245(i) Adjustment in Proceedings ......................................................................................... 1052
i. Enforcement Issues .......................................................................................................................... 1053
j. Reinstatement of Removal ............................................................................................................... 1053
3. Special Exemption for Employment-Based Adjustment Applicants ........................................................ 1054
4. T & U Adjustment of Status ................................................................................................................. 1056
5. CNMI (Northern Mariana Islands) Adjustment Now Permitted for All Categories .................................. 1056
6. Jurisdiction .......................................................................................................................................... 1056
7. Advance Parole ................................................................................................................................... 1057
a. Departure Without Advance Permission During Pendency of AOS Is Considered Abandonment ........ 1057
b. Exceptions ....................................................................................................................................... 1057
c. Regional Directors’ Jurisdiction to Grant Advance Parole ................................................................. 1057
d. Advance Parole and Employment Authorization ............................................................................... 1058
e. Others Eligible for Advance Parole .................................................................................................. 1058
f. Persons Outside the U.S. .................................................................................................................. 1058
g. Status Upon Return .......................................................................................................................... 1058
h. Arriving Aliens and Adjustment of Status ......................................................................................... 1058
i. Advance Parole and Three/Ten Year Bars ......................................................................................... 1059
j. Advance Parole and Suspension/Cancellation of Removal ................................................................. 1059
k. Effect on Family’s Status ................................................................................................................. 1059
l. Revocation of Advance Parole.......................................................................................................... 1059
8. Parole-in-Place .................................................................................................................................... 1059
9. Employment Authorization .................................................................................................................. 1059
10. Denial of Adjustment ........................................................................................................................... 1060
11. Rescission of Adjustment ..................................................................................................................... 1060
12. Removal Proceedings After Adjustment or While Adjustment Is Pending .............................................. 1061
XVI. OTHER MATTERS CONCERNING LPRs
A. Travel and Reentry Document .................................................................................................................... 1061
B. Permanent Resident Card (“Green Card”) I-551......................................................................................... 1063
C. Verifying Residency ................................................................................................................................... 1064
D. Second Residency ....................................................................................................................................... 1064
E. Abandonment of Residency ........................................................................................................................ 1065
F. Termination of Residency in Removal Proceedings.................................................................................... 1067
G. Children of LPRs Born Abroad .................................................................................................................. 1067
H. Tax Information .......................................................................................................................................... 1067
I. Social Security Payments ............................................................................................................................. 1069
J. Social Security Cards ................................................................................................................................... 1070
K. Public Benefits ........................................................................................................................................... 1071
L. Driver’s Licenses & REAL ID Act ............................................................................................................. 1073
M. Health Insurance ........................................................................................................................................ 1073
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CHAPTER 7
EMPLOYMENT-BASED IMMIGRATION AND
LABOR CERTIFICATION
I. INTRODUCTION .......................................................................................................................................... 1077
II. FIRST PREFERENCE: Priority Workers (EB-1)
A. Generally .................................................................................................................................................... 1077
B. Persons of Extraordinary Ability ................................................................................................................ 1077
C. Outstanding Professors and Researchers .................................................................................................... 1080
D. Multinational Executives and Managers ..................................................................................................... 1082
III. SECOND PREFERENCE: Members of Professions Holding Advanced Degrees or Aliens of
Exceptional Ability (EB-2)
A. Generally .................................................................................................................................................... 1084
B. Eligibility .................................................................................................................................................... 1084
C. Labor Certification (LC), National Interest Waiver (NIW), or Schedule A ................................................ 1085
D. Definition of Advanced Degree .................................................................................................................. 1085
E. Definition of Exceptional Ability................................................................................................................ 1087
F. Substantial Prospective Benefit ................................................................................................................... 1087
G. National Interest Waiver (NIW) ................................................................................................................. 1087
H. International Medical Graduates................................................................................................................. 1090
I. Nurses .......................................................................................................................................................... 1092
IV. THIRD PREFERENCE: Professionals, Skilled and Other Workers (EB-3) ......................................... 1092
V. FOURTH PREFERENCE: Special Immigrants (EB-4)
A. Generally .................................................................................................................................................... 1094
B. Returning Residents .................................................................................................................................... 1094
C. Persons Reacquiring U.S. Citizenship ........................................................................................................ 1095
D. Religious Workers ...................................................................................................................................... 1095
E. Employees of U.S. Government, or of American Institute in Taiwan, for 15 Years ................................... 1099
F. Panama Canal Treaty Employees and their Spouses and Children.............................................................. 1099
G. International Medical Graduates (IMGs) .................................................................................................... 1099
H. G-4s ............................................................................................................................................................ 1100
I. Court Dependents; Special Immigrant Juveniles (SIJ) ................................................................................ 1100
J. U.S. Service Members Who Honorably Served on Active Duty for 12 Years ............................................ 1103
K. NATO Civilian Employees ........................................................................................................................ 1103
L. BBG Broadcasters ....................................................................................................................................... 1103
M. Translators with the U.S. Armed Forces .................................................................................................... 1103
N. Iraqis Providing Faithful and Valuable Service to U.S. .............................................................................. 1104
O. Afghan Allies Protection Act of 2009 ........................................................................................................ 1104
VI. FIFTH PREFERENCE: Employment Creation (Investors) (EB-5)
A. Basic Program ............................................................................................................................................ 1105
B. Must Invest in a New Commercial Enterprise ............................................................................................ 1105
C. Investments (Amount) ................................................................................................................................ 1106
D. Source of Funds .......................................................................................................................................... 1107
E. Targeted Employment Area (TEA) ............................................................................................................. 1107
F. Investment (At Risk) ................................................................................................................................... 1107
G. Multiple Investors; Partnerships ................................................................................................................. 1108
H. Employment Creation ................................................................................................................................. 1109
I. Regional Center Pilot Program .................................................................................................................... 1110
J. Application (I-526) and Evidence Required ................................................................................................ 1112
1075
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1076
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
VI. Fifth Preference (EB-5), cont’d
K. Investor Must Petition for Removal of CR Status (I-829) .......................................................................... 1114
L. Spouse and Children ................................................................................................................................... 1116
M. Termination of Status................................................................................................................................. 1116
N. Removal Proceedings ................................................................................................................................. 1116
O. Naturalization and Petitioning for Others ................................................................................................... 1117
P. Securities Law Issues .................................................................................................................................. 1117
Q. Litigation Concerning the Investor Program .............................................................................................. 1118
R. Special Legislation for Certain Investors with CR Status or Approved I-526 Petitions.............................. 1119
VII. COMMON ISSUES IN EMPLOYMENT-BASED IMMIGRATION
A. Petition Process .......................................................................................................................................... 1119
B. USCIS Review of DOL Certification ......................................................................................................... 1126
C. Work Authorization .................................................................................................................................... 1130
VIII. LABOR CERTIFICATION (LC)
A. Requirements .............................................................................................................................................. 1131
B. Method of Certification .............................................................................................................................. 1131
C. Individual Certification under PERM ......................................................................................................... 1133
1. Basic Procedure ................................................................................................................................... 1133
a. Employer Must Register................................................................................................................... 1133
b. Employer Must File ETA-9089 ........................................................................................................ 1134
c. State Workforce Agency (SWA) ...................................................................................................... 1139
d. Recruitment Process ........................................................................................................................ 1140
e. Notice to Bargaining Representatives or Notice of Filing / Posting Notice to Employees .................... 1149
f. Recruitment Report .......................................................................................................................... 1151
g. Request for Audit............................................................................................................................. 1152
h. Supervised Recruitment ................................................................................................................... 1155
i. Payment of Fees .............................................................................................................................. 1156
j. Investigation and Suspension of Application Process......................................................................... 1156
k. Debarment ....................................................................................................................................... 1156
l. Final Decision by CO....................................................................................................................... 1157
2. Validity of the LC ................................................................................................................................ 1159
3. Duplicate LC ....................................................................................................................................... 1159
4. No Expedited Cases for Aging-Out Children......................................................................................... 1159
5. Substitution of Beneficiary ................................................................................................................... 1160
6. Amendment or Modification of the LC ................................................................................................. 1160
7. Sale, Barter or Purchase of LC ............................................................................................................. 1160
8. Special Substitution Rule for Professional Athletes ............................................................................... 1160
9. Revocation/Invalidation of LC ............................................................................................................. 1161
10. Denial/Appeal Process ......................................................................................................................... 1161
11. Withdrawal.......................................................................................................................................... 1161
12. Basic Contested Requirements ............................................................................................................. 1161
13. Unduly Restrictive ............................................................................................................................... 1168
14. Prevailing Wage .................................................................................................................................. 1175
15. Bona Fide Job Offer............................................................................................................................. 1179
16. Full-Time and Permanent ..................................................................................................................... 1183
17. Layoffs................................................................................................................................................ 1185
18. Location of Job .................................................................................................................................... 1185
19. Recruitment Program ........................................................................................................................... 1185
D. Schedule A, Teachers, Live-Ins, and Other Cases ...................................................................................... 1191
IX. ADMINISTRATIVE APPEAL / REVIEW BY BALCA
A. Generally .................................................................................................................................................... 1194
B. Procedure .................................................................................................................................................... 1194
C. Interlocutory Appeals ................................................................................................................................. 1198
D. Order to Show Cause .................................................................................................................................. 1198
E. Discipline Lawyers ..................................................................................................................................... 1199
F. Appeals to AAO .......................................................................................................................................... 1199
X. FEDERAL JUDICIAL REVIEW ................................................................................................................ 1199
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CHAPTER 8
RELIEF FROM REMOVAL
I. OVERVIEW
A. Forms of Relief ........................................................................................................................................... 1205
B. Withdrawal of Relief Under IIRIRA .......................................................................................................... 1205
C. Withdrawal of Relief Pre-IIRIRA ............................................................................................................... 1206
D. Withdrawal of Relief for Violation of Protective Order ............................................................................. 1206
E. Timing in Request for Relief....................................................................................................................... 1206
F. DHS Production of Application .................................................................................................................. 1207
G. Burden and Standard of Proof after the REAL ID Act ............................................................................... 1207
H. Presentation of Evidence ............................................................................................................................ 1207
I. Fundamentally Fair Hearing ........................................................................................................................ 1208
J. Criminal and Other Conduct Affecting Discretionary Cases ....................................................................... 1208
K. Agency Standards ....................................................................................................................................... 1209
L. Constitutional Protection for Due Process Violations when Seeking Relief ............................................... 1210
M. International Law Issues ............................................................................................................................ 1211
N. Equitable Tolling When Seeking Relief ..................................................................................................... 1211
O. Security Checks .......................................................................................................................................... 1212
II. GOOD MORAL CHARACTER
A. Statutory Ineligibility.................................................................................................................................. 1212
B. Discretionary Ineligibility ........................................................................................................................... 1214
III. VOLUNTARY DEPARTURE
A. Prehearing Voluntary Departure by DHS ................................................................................................... 1215
1. Generally ............................................................................................................................................. 1215
2. Visa Waiver Medical Problem .............................................................................................................. 1215
B. Voluntary Departure in Removal Proceedings............................................................................................ 1215
1. Prehearing VD / VD Prior to Completion of Proceedings ...................................................................... 1215
2. By Stipulation...................................................................................................................................... 1216
3. At Conclusion of Removal Hearing ...................................................................................................... 1216
4. Voluntary Departure Is Discretionary ................................................................................................... 1217
5. Expiration of Voluntary Departure Period ............................................................................................. 1217
6. Civil Penalty and Denial of Other Relief for Failure to Depart ............................................................... 1217
7. Additional Conditions .......................................................................................................................... 1219
8. Changes in Voluntary Departure from Previous Law ............................................................................. 1219
9. Effectives Dates................................................................................................................................... 1219
C. Procedural Issues ........................................................................................................................................ 1219
1. Extensions ........................................................................................................................................... 1219
2. Motions to Reopen............................................................................................................................... 1220
3. Hearsay Evidence ................................................................................................................................ 1220
4. Use of Testimony ................................................................................................................................ 1220
5. BIA and Voluntary Departure............................................................................................................... 1220
6. Circuit Courts and Voluntary Departure ................................................................................................ 1220
a. Generally......................................................................................................................................... 1220
b. Pre-IIRIRA and Transition Rule Cases ............................................................................................. 1221
c. Stay of Voluntary Departure ............................................................................................................. 1221
d. Standard for Stay of VD ................................................................................................................... 1222
e. Stay of Removal vs. Stay of Voluntary Departure ............................................................................. 1222
f. No Exhaustion of Administrative Remedies ...................................................................................... 1222
7. Three- and Ten-Year Bars and Voluntary Departure .............................................................................. 1222
D. Administrative Review ............................................................................................................................... 1222
E. Judicial Review ........................................................................................................................................... 1222
1. Limitations on Judicial Review ............................................................................................................ 1222
2. Abuse of Discretion Standard ............................................................................................................... 1223
1201
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1202
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
IV. CANCELLATION OF REMOVAL
A. Elimination of Suspension of Deportation and INA §212(c) ...................................................................... 1223
B. Cancellation of Removal for LPRs ............................................................................................................. 1223
1. Eligibility ............................................................................................................................................ 1223
2. Ineligible for LPR Cancellation [INA §240A(c)] ................................................................................... 1226
3. Continuous Residence/Physical Presence and the Stop-Time Rule ......................................................... 1226
4. Application.......................................................................................................................................... 1228
5. Cancellation Is Indefinite ..................................................................................................................... 1228
6. Changes from Waiver under Former INA §212(c) ................................................................................. 1229
a. Effective Date.................................................................................................................................. 1229
b. LPR vs. “Lawfully Domiciled” ......................................................................................................... 1229
c. Commencement of Residence .......................................................................................................... 1229
d. Aggravated Felony Bar to Cancellation ............................................................................................. 1229
e. Creation of Removal Proceedings ..................................................................................................... 1230
f. Tolling of Residence Period ............................................................................................................. 1230
g. Motions to Reopen ........................................................................................................................... 1230
h. Continuing Viability of INA §212(c) for Persons in Deportation Proceedings..................................... 1230
7. Continuing Availability of §212(c) Relief ............................................................................................. 1231
a. Proceedings Commenced Before Apr. 1, 1997 .................................................................................. 1231
b. Pre-AEDPA/IIRIRA Convictions but Post-AEDPA/IIRIRA Proceedings & St. Cyr ............................ 1232
c. Adjustment of Status and §212(c) ..................................................................................................... 1234
d. Regulations Following St. Cyr .......................................................................................................... 1234
e. Special Motions to Reopen for §212(c) Relief ................................................................................... 1235
f. IMMACT90 Considerations ............................................................................................................. 1235
g. Pre-IMMACT90 Convictions ........................................................................................................... 1237
h. Possible Ineligibility for INA §212(c) Relief Post–St. Cyr ................................................................. 1237
(1) Conviction by Jury......................................................................................................................................... 1237
(2) Deportation vs. Exclusion & AEDPA §440(d) ............................................................................................. 1237
(3) Post AEDPA/Pre-IIRIRA Convictions ......................................................................................................... 1237
(4) Pre-AEDPA/IIRIRA Conduct, Post-AEDPA/IIRIRA Conviction ............................................................... 1238
(5) Reinstatement Under INA §241(a)(5) ........................................................................................................... 1238
(6) Terrorism ....................................................................................................................................................... 1238
(7) Departure from U.S. Prior to Change in Law ............................................................................................... 1238
(8) Ineligibility Under IMMACT90 .................................................................................................................... 1239
(9) Statutory Counterpart Rule ............................................................................................................................ 1239
i. Equal Protection Challenges Rejected ............................................................................................... 1240
j. Judicial Review ............................................................................................................................... 1240
k. Waiver submitted on Form EOIR-42 if before the IJ [I-191 if before the DD]..................................... 1240
8. Discretionary Eligibility for Cancellation of Removal ........................................................................... 1240
C. Cancellation of Removal and Adjustment of Status for Non-LPRs ............................................................ 1242
1. Eligibility ............................................................................................................................................ 1242
2. Ineligible for Non-LPR Cancellation .................................................................................................... 1245
3. Continuous Physical Presence and the Stop-Time Rule.......................................................................... 1246
4. Equitable Tolling and 10-Year Requirement ......................................................................................... 1246
5. Certain Breaks in Continuous Physical Presence ................................................................................... 1246
6. VWP Entrant ....................................................................................................................................... 1247
7. Special Rule Cancellation for Battered Spouse or Child......................................................................... 1247
a. Criteria ............................................................................................................................................ 1247
b. Special Extreme Hardship Factors Tailored to Domestic Violence Apply ........................................... 1247
c. Standard for Battery and Cruelty ...................................................................................................... 1247
d. Judicial Review ............................................................................................................................... 1247
e. Credible Evidence............................................................................................................................ 1248
f. 90/180-Day Bar ............................................................................................................................... 1248
g. Section 101(f) .................................................................................................................................. 1248
h. Cancellation is Discretionary ............................................................................................................ 1248
i. Parole of Family Member................................................................................................................. 1248
8. Limitation on Grant of Cancellation and Adjustment of Status ............................................................... 1248
9. Changes from Suspension of Deportation under Former INA §§244(a)(1) and (2) .................................. 1248
10. Criteria for Establishing Hardship......................................................................................................... 1249
a. Generally......................................................................................................................................... 1250
b. Family Separation ............................................................................................................................ 1250
c. Economic Hardship.......................................................................................................................... 1250
d. Psychiatric and Medical Concerns .................................................................................................... 1251
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CHAPTER 8 • RELIEF FROM REMOVAL
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1203
e. Lack of Enforcement of a Final Order ............................................................................................... 1251
f. Persecution ...................................................................................................................................... 1251
g. Community Ties and Acculturation .................................................................................................. 1251
h. Must Consider Each Factor .............................................................................................................. 1251
i. Equities ........................................................................................................................................... 1252
j. Current Hardship Information .......................................................................................................... 1252
11. Application.......................................................................................................................................... 1252
12. Effective Date for Cancellation; Status of Suspension Applications Currently Pending ........................... 1252
13. Suspension of Deportation under NACARA §203 ................................................................................. 1252
a. Salvadorans ..................................................................................................................................... 1252
b. Guatemalans .................................................................................................................................... 1253
c. ABC Class Members ........................................................................................................................ 1253
d. Eastern Europeans ........................................................................................................................... 1253
e. Asylum Office Jurisdiction ............................................................................................................... 1253
f. IJ Jurisdiction .................................................................................................................................. 1254
g. Application...................................................................................................................................... 1254
h. Eligibility ........................................................................................................................................ 1254
i. Proving the Claim ............................................................................................................................ 1254
j. Special Presumption of Extreme Hardship for Salvadorans and Guatemalans ..................................... 1254
k. Motions to Reopen ........................................................................................................................... 1255
l. Equitable Tolling ............................................................................................................................. 1255
m. Circuit Court Authority .................................................................................................................... 1255
n. Reinstatement of Removal under INA §241(a)(5) .............................................................................. 1255
14. Administrative Review ........................................................................................................................ 1256
15. Judicial Review ................................................................................................................................... 1256
16. Suspension of Deportation under Former Provisions ............................................................................. 1258
a. Seven-Year Suspension .................................................................................................................... 1259
b. Ineligible Persons ............................................................................................................................ 1260
c. Ten-Year Suspension ....................................................................................................................... 1260
d. Application of Stop-Time Rule to Suspension Cases ......................................................................... 1260
e. Battered Spouse or Child.................................................................................................................. 1262
f. Barahona Settlement ....................................................................................................................... 1262
D. Repapering ................................................................................................................................................. 1262
V. ASYLUM, WITHHOLDING OF REMOVAL & PROTECTION UNDER CAT................................... 1263
VI. ADJUSTMENT OF STATUS
A. Eligibility .................................................................................................................................................... 1263
B. All Grounds of Inadmissibility Apply......................................................................................................... 1263
C. Continuances for Adjustment of Status....................................................................................................... 1264
D. Motions to Reopen for Adjustment of Status.............................................................................................. 1264
E. Voluntary Departure and Adjustment of Status .......................................................................................... 1265
F. Deportability Generally Does Not Bar Adjustment..................................................................................... 1265
G. IJ Must Adjudicate Adjustment or Conditionally Terminate Proceedings.................................................. 1265
H. Adjustment of Status Unavailable for Certain Individuals ......................................................................... 1265
I. Adjustment of Status of Arriving Aliens ..................................................................................................... 1265
J. Waiver ........................................................................................................................................................ 1265
K. Security Check/Name Check ...................................................................................................................... 1266
L. Readjustment of LPRs ................................................................................................................................ 1266
M. Refugee or Asylee Adjustment of Status ................................................................................................... 1266
N. Judicial Review .......................................................................................................................................... 1266
VII. WAIVERS OF REMOVAL
A. INA §237(a)(1)(H), Waiver for Certain Misrepresentations....................................................................... 1266
1. Generally ............................................................................................................................................ 1266
2. Stacking Waivers ................................................................................................................................. 1267
3. Initial Fraud as a Discretionary Factor .................................................................................................. 1267
4. No Judicial Review of Discretionary Decision ...................................................................................... 1267
B. Waiver Under Predecessor Statute, INA §241(f) ........................................................................................ 1268
C. INA §237(a)(1)(E)(iii), Waiver for Smuggling........................................................................................... 1268
VIII. NUNC PRO TUNC PERMISSION TO REAPPLY .............................................................................. 1268
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1204
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
IX. ESTOPPEL
A. Affirmative Misconduct Required .............................................................................................................. 1269
B. Inattention, Failure to Act, or Neglect not Sufficient .................................................................................. 1269
C. Public Policy Considerations ...................................................................................................................... 1270
D. Parents of Minor Child ............................................................................................................................... 1271
E. Estoppel Against Government Funds .......................................................................................................... 1271
F. BIA Has No Estoppel Authority ................................................................................................................. 1271
G. Equitable Estoppel and Equitable Tolling Distinguished ........................................................................... 1271
X. COLLATERAL ATTACK ON PRIOR DEPORTATION ORDER ........................................................ 1271
XI. DEFERRED ACTION
A. Discretionary .............................................................................................................................................. 1271
B. Preclusion of Review .................................................................................................................................. 1272
XII. PROSECUTORIAL DISCRETION......................................................................................................... 1271
XIII. WAIVERS UNDER INA §§212(g), (h), (i), (k), 209(c), and 213
A. Generally .................................................................................................................................................... 1272
B. Concurrent (“Stacking”) Waivers ............................................................................................................... 1272
C. INA §212(g) Waiver ................................................................................................................................... 1273
D. INA §212(c) and Cancellation .................................................................................................................... 1273
E. INA §§212(h), (i) Waivers .......................................................................................................................... 1273
F. INA §212(k) Waiver ................................................................................................................................... 1273
G. INA §209(c) Waiver ................................................................................................................................... 1273
H. INA §213 Waiver ....................................................................................................................................... 1274
I. Judicial Review ............................................................................................................................................ 1274
XIV. PRIVATE LEGISLATION ..................................................................................................................... 1274
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CHAPTER 9
ADMINISTRATIVE REVIEW
I. REVIEW BY BOARD OF IMMIGRATION APPEALS (BIA)
A. Generally .................................................................................................................................................... 1277
B. Jurisdiction ................................................................................................................................................. 1277
C. Board Procedure ......................................................................................................................................... 1278
1. Three-Member Panel ........................................................................................................................... 1278
2. Single Member .................................................................................................................................... 1278
3. Affirmance Without Opinion (AWO) ................................................................................................... 1279
4. En Banc Decisions ............................................................................................................................... 1281
5. Clearly Erroneous Rule Established ...................................................................................................... 1281
6. Review by the Attorney General ........................................................................................................... 1282
D. Certification ................................................................................................................................................ 1282
E. Acquiescence to Circuit Court Decisions and Brand X ............................................................................... 1282
F. Undue Influence .......................................................................................................................................... 1283
II. INTERLOCUTORY JURISDICTION OF THE BIA ............................................................................... 1283
III. APPEAL PROCEDURE
A. In Removal Proceedings ............................................................................................................................. 1283
1. Timeliness of Appeal ........................................................................................................................... 1283
2. BIA Can Reissue Decision to Avoid Injustice ....................................................................................... 1285
3. Waiver of Appeal ................................................................................................................................ 1285
4. Article III Limitations Not Binding on Board ........................................................................................ 1286
5. Form of Appeal ................................................................................................................................... 1286
6. Briefing Schedule ................................................................................................................................ 1286
7. Appeal from Decisions of a DHS Officer .............................................................................................. 1287
B. Summary Dismissal of Appeal ................................................................................................................... 1287
C. Rebuttal of Summary Dismissal ................................................................................................................. 1289
D. Disciplinary Consequences......................................................................................................................... 1289
E. Three-Member Panel Disposition ............................................................................................................... 1289
F. Automatic and Requested Stays .................................................................................................................. 1289
G. Holding Case in Abeyance ......................................................................................................................... 1289
H. Denial of Oral Argument ............................................................................................................................ 1289
I. Notice of BIA Decision and Reinstatement of Decision .............................................................................. 1289
J. Withdrawal of Appeal .................................................................................................................................. 1290
K. Criticism of BIA Procedures and Decisions ............................................................................................... 1290
IV. DEPARTURE DURING APPEAL
A. Removal/Deportation Proceedings ............................................................................................................. 1291
B. Exclusion Proceedings ................................................................................................................................ 1292
V. REINSTATEMENT OF VOLUNTARY DEPARTURE; AUTHORITY TO ENTER FINAL ORDER
A. Voluntary Departure (VD) Order Generally ............................................................................................... 1292
B. BIA’s Authority to Enter Final Order of Removal...................................................................................... 1292
VI. MOTIONS PRACTICE BEFORE THE BIA ........................................................................................... 1293
VII. APPEAL FROM DECISIONS OF A DHS OFFICER ........................................................................... 1296
VIII. SCOPE OF REVIEW
A. Limitations on De Novo Review ................................................................................................................ 1296
B. Clearly Erroneous Rule............................................................................................................................... 1297
C. No Fact Finding .......................................................................................................................................... 1298
D. Credibility Determinations ......................................................................................................................... 1299
E. Waiver of Issues Not Objected to or Raised before IJ................................................................................. 1302
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
VIII. Scope of Review, cont’d
F. BIA Decision............................................................................................................................................... 1302
G. Court Review of BIA or IJ Decision .......................................................................................................... 1303
H. Precedent Decisions, Index Decisions, Constitutional Claims, and Application of the Law ...................... 1305
I. Administrative Notice .................................................................................................................................. 1306
IX. REVIEW BY AAO / REGIONAL COMMISSIONER
A. Jurisdiction ................................................................................................................................................. 1308
B. De Novo Review and Supplementing the Record ....................................................................................... 1309
C. Notice of Appeal and Brief ......................................................................................................................... 1309
D. Confidentiality of Decision......................................................................................................................... 1310
X. REVIEW BY BALCA .................................................................................................................................. 1310
XI. REVIEW BY OCAHO ................................................................................................................................ 1310
XII. REVIEW BY EXCHANGE VISITOR WAIVER REVIEW BOARD .................................................. 1311
A. Provides for Review of INA §212(e) Waivers ........................................................................................... 1311
B. Composition................................................................................................................................................ 1311
XIII. MOTION TO REOPEN OR RECONSIDER BEFORE EOIR
A. Generally .................................................................................................................................................... 1311
B. Motion to Reconsider ................................................................................................................................. 1311
C. Motion to Reopen ....................................................................................................................................... 1313
D. Motions Filed while Appeal Pending ......................................................................................................... 1314
E. BIA May Deny Reopening ......................................................................................................................... 1315
F. Departure from U.S. During Pendency of Motion; Prohibition on Filing Motion if Outside U.S. .............. 1315
G. Reopening or Reconsideration Barred ........................................................................................................ 1317
1. Time & Numerical Limitations ............................................................................................................. 1317
2. Motion Seeks Relief That Is Barred ...................................................................................................... 1319
3. Motion Seeks Relief That BIA/IJ Have No Jurisdiction over.................................................................. 1319
4. Prior Opportunity to Apply for Benefits ................................................................................................ 1319
5. Application for Relief Must Be Attached .............................................................................................. 1319
6. Ineligible for Relief.............................................................................................................................. 1320
7. Inadequate Support for Legal Argument ............................................................................................... 1320
8. Appeal Pending ................................................................................................................................... 1320
9. Marriage-Based Visa Petition Not Yet Approved .................................................................................. 1320
10. Motion Abandoned .............................................................................................................................. 1321
11. Motion Filed During Judicial Proceedings ............................................................................................ 1321
12. Motion Challenges BIA Streamlining ................................................................................................... 1321
H. Exceptions to Rule Barring Motions to Reopen ......................................................................................... 1321
1. Sua Sponte Reopening by BIA ............................................................................................................. 1321
2. Agreement to Reopen .......................................................................................................................... 1323
3. Changed Country Conditions ............................................................................................................... 1323
4. Exceptional Circumstances/Failure to Receive Notice for In Absentia Orders......................................... 1327
5. Equitable Tolling ................................................................................................................................. 1327
6. Motions to Reopen/Rescind In Absentia Orders .................................................................................... 1331
7. Motion for Battered Spouse, Parent, or Child ........................................................................................ 1331
I. Motion to Reopen or Reconsider Does Not Result in a Stay........................................................................ 1331
J. Appeal of Motion to Reopen Does Not Provide Automatic Stay ................................................................. 1332
K. Unavailability Issue .................................................................................................................................... 1332
L. Untimely Opposition ................................................................................................................................... 1333
M. Due Process ............................................................................................................................................... 1333
N. Discretionary Denials ................................................................................................................................. 1333
1. Deferential Abuse of Discretion Standard ............................................................................................. 1333
2. Marriage During Removal Proceedings ................................................................................................ 1334
3. Denial Must be Reasoned, Not Arbitrary............................................................................................... 1334
4. Fugitive Disentitlement Doctrine .......................................................................................................... 1334
5. Consideration of Motion to Reopen Factors .......................................................................................... 1334
XIV. MOTION TO REOPEN OR RECONSIDER BEFORE REGIONAL SERVICE CENTERS ............. 1335
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CHAPTER 10
FEDERAL JUDICIAL REVIEW
I. OVERVIEW
A. Generally .................................................................................................................................................... 1341
1. Limited Judicial Review....................................................................................................................... 1341
2. Preservation of Review of Constitutional Claims and Questions of Law ................................................. 1342
3. Limitations on the Preservation of Questions of Law ............................................................................. 1343
4. Constitutional Review and Jurisdiction to Determine Jurisdiction Preserved........................................... 1344
5. Habeas May Always Be Preserved if Court of Appeals Review Is Insufficient........................................ 1344
6. Non–Final Orders ................................................................................................................................ 1345
7. Procedures for Review Altered ............................................................................................................. 1345
B. Scope of Review ......................................................................................................................................... 1346
C. Restriction under INA §242 Regarding Judicial Review of a Final Order of Removal .............................. 1349
D. Restriction on Judicial Review in Other Areas ........................................................................................... 1349
E. Summary ..................................................................................................................................................... 1350
II. INA §242 REVIEW
A. Review is Limited to Review of Final Orders of Removal ......................................................................... 1351
B. Statutory Standard Under INA §242(b)(9), 8 U.S.C. §1252(b)(9) .............................................................. 1352
C. Pre-IIRIRA Definition of Final Order ........................................................................................................ 1353
D. Chadha ....................................................................................................................................................... 1354
E. District Director Decisions.......................................................................................................................... 1354
F. Pendent Review........................................................................................................................................... 1355
G. Collateral Orders ........................................................................................................................................ 1355
III. OTHER JURISDICTIONAL BASES
A. Federal Question, 28 U.S.C. §1331 Review ............................................................................................... 1355
B. APA Review ............................................................................................................................................... 1357
C. Habeas Corpus Jurisdiction ........................................................................................................................ 1363
1. The Writ of Habeas Corpus .................................................................................................................. 1363
2. Habeas Review after AEDPA, IIRIRA and the REAL ID Act ................................................................ 1363
3. Scope of Habeas .................................................................................................................................. 1367
4. Habeas Actions and Bail Determinations .............................................................................................. 1368
5. Habeas Not Available to Review Matters Within and Not Precluded by INA §242 ................................. 1368
6. Habeas Not Available to Review Visa Revocation ................................................................................ 1369
7. The Meaning of “In Custody” for Habeas ............................................................................................. 1369
8. Transfer of Person after Habeas Filed ................................................................................................... 1370
9. Personal Jurisdiction, Personal Service, and Venue ............................................................................... 1371
10. Habeas for Persons Outside the U.S. ..................................................................................................... 1373
11. Exhaustion of Administrative Remedies ............................................................................................... 1374
12. Law of the Case/Res Judicata ............................................................................................................... 1375
13. Habeas Must be Filed in District Court ................................................................................................. 1375
14. Discovery in Habeas Proceeding under 28 U.S.C. §2241 ....................................................................... 1376
15. Stay or Delay in Hearing Habeas Proceedings ....................................................................................... 1376
16. Habeas May Not Be Permissible for Collateral Attack ........................................................................... 1376
17. Successive Applications and Fee Requirements for Habeas Petitions ..................................................... 1377
18. Habeas Proceeding Reviewing Summary Removal under INA §235(b)(1).............................................. 1377
19. Procedural Requirements ..................................................................................................................... 1378
20. Sanctions Against Counsel ................................................................................................................... 1378
D. Mandamus .................................................................................................................................................. 1378
E. Injunctive Relief ......................................................................................................................................... 1383
F. Declaratory Judgment Action...................................................................................................................... 1384
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
IV. BAR TO JUDICIAL REVIEW
A. Preclusion of Review .................................................................................................................................. 1385
1. Review of AG’s Discretionary Decisions re Detention or Release .......................................................... 1385
2. Review of Decisions re Persons with Convictions ................................................................................. 1385
3. The Discretionary Decision Bars .......................................................................................................... 1388
4. The §242(g) Bar .................................................................................................................................. 1403
5. Review of DHS or AG Decisions Regarding Voluntary Departure (VD) ................................................ 1407
6. Review of DHS or AG Judgment re §§212(h) or (i) Relief, Cancellation (§240A), VD (§240B) .............. 1407
7. Review of DHS Decisions re Summary Exclusion (§235(b)(1) .............................................................. 1407
8. Review of DHS Decisions to Grant or Deny Waiver under §§212(d)(12) or 237(a)(3)(C)(ii) ................... 1407
9. Review of DHS or AG Decisions to Grant or Deny Waiver under §212(h) ............................................. 1407
10. Review of DHS or AG Decisions to Grant or Deny Waiver under §212(i) .............................................. 1407
11. Review of DHS or AG Decisions or Actions re Waiver of §212(A)(9)(B) Inadmissibility ....................... 1407
12. Review of Any Removal Decision by IJ Based Solely on Medical Certification under §240(c)(1)(B) ...... 1408
13. Collateral Attacks on Removal Orders .................................................................................................. 1408
14. Suits Against U.S. or Its Agencies or Officers under INA §279.............................................................. 1408
15. The Secretary of State or Consular Officer’s Decision to Revoke an IV or NIV under INA §221(i) ......... 1408
16. Asylum Review ................................................................................................................................... 1408
17. Judicial Review of CAT Claims ........................................................................................................... 1410
18. Review of Corroboration Requirement.................................................................................................. 1412
19. Reinstatement of Removal Order Review ............................................................................................. 1412
20. Prior Bars to Review ............................................................................................................................ 1413
21. Strong Presumption of Review ............................................................................................................. 1413
22. Clear Statement Rule ........................................................................................................................... 1414
23. Maintaining the Writ of Habeas Corpus ................................................................................................ 1414
B. Exhaustion Requirement ............................................................................................................................. 1414
1. Statutory Failure to Exhaust ................................................................................................................. 1414
2. Denying for Failure to Exhaust ............................................................................................................. 1414
3. More Liberal View of Exhaustion......................................................................................................... 1416
4. Issue and Claims Exhaustion Distinguished .......................................................................................... 1417
5. Prudential Failure to Exhaust................................................................................................................ 1417
6. Waiver before BIA as Basis for Failure to Exhaust ................................................................................ 1417
7. Exhaustion of Constitutional Issues ...................................................................................................... 1417
8. Exhaustion of Nonconstitutional Claims Required................................................................................. 1418
9. Motions to Reopen............................................................................................................................... 1422
10. Where Evidence Not Presented ............................................................................................................ 1422
11. Where No Opportunity to Appeal ......................................................................................................... 1422
12. Exhaustion May Be Prudential Not Jurisdictional .................................................................................. 1422
13. Exhaustion Does Not Apply ................................................................................................................. 1422
14. Pro Se Applicants ................................................................................................................................ 1430
15. Non–Final Orders ................................................................................................................................ 1430
16. Government Waiver ............................................................................................................................. 1430
C. Other Article III Questions ......................................................................................................................... 1430
1. Subject-Matter Jurisdiction .................................................................................................................. 1430
2. Standing .............................................................................................................................................. 1433
3. Ripeness .............................................................................................................................................. 1438
4. Mootness ............................................................................................................................................. 1440
5. Attenuation.......................................................................................................................................... 1443
6. Laches................................................................................................................................................. 1443
7. Political Question ................................................................................................................................ 1443
8. Doctrine of Non-Inquiry....................................................................................................................... 1444
9. Proper Party Defendant ........................................................................................................................ 1444
D. Waiver of Review ....................................................................................................................................... 1444
1. Fugitive Disentitlement Doctrine .......................................................................................................... 1444
2. Futility ................................................................................................................................................ 1445
3. Waiver of Issues Not Raised in Appellate Brief ..................................................................................... 1445
4. Incorporation by Reference .................................................................................................................. 1446
5. Waiving a Waiver ................................................................................................................................ 1446
6. Manifest Injustice / Exceptional Circumstance ...................................................................................... 1446
E. Prior Adjudication....................................................................................................................................... 1446
F. Departure from U.S. .................................................................................................................................... 1447
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CHAPTER 10 • FEDERAL JUDICIAL REVIEW
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1339
G. Venue ......................................................................................................................................................... 1449
V. SCOPE OF REVIEW
A. Plenary Review........................................................................................................................................... 1449
B. Committed to Agency Discretion ............................................................................................................... 1450
C. De Novo Review ......................................................................................................................................... 1452
D. Post Hoc Review Prohibited....................................................................................................................... 1452
E. Agency Record ........................................................................................................................................... 1454
F. Standards of Review ................................................................................................................................... 1456
1. Facially Legitimate and Bona Fide ....................................................................................................... 1457
2. Manifestly Contrary to Law ................................................................................................................. 1457
3. Abuse of Discretion Test ...................................................................................................................... 1457
4. Substantial-Evidence Test .................................................................................................................... 1467
5. Harmless Error Doctrine ...................................................................................................................... 1471
G. Law of the Case Doctrine ........................................................................................................................... 1471
H. Doctrine of Agency Deference ................................................................................................................... 1471
1. Generally ............................................................................................................................................ 1471
2. Chevron Step 1: Clarity of Statutory Language ..................................................................................... 1472
3. Chevron Step 2 Cases Granting Deference ............................................................................................ 1474
4. Brand X Deference .............................................................................................................................. 1476
5. Inapplicability of Chevron.................................................................................................................... 1477
6. Skidmore Deference ............................................................................................................................. 1478
7. IJ Decision with AWO by BIA ............................................................................................................. 1479
8. Deference is also inappropriate where:.................................................................................................. 1479
9. Rule of Lenity and Chevron Deference ................................................................................................. 1482
VI. PROCEDURES FOR REVIEW OF REMOVAL DECISIONS
A. Removal Proceedings ................................................................................................................................. 1482
1. Generally ............................................................................................................................................ 1482
2. Exception to 30-Day Rule .................................................................................................................... 1483
3. Motions to Reopen............................................................................................................................... 1484
4. Interlocutory Orders ............................................................................................................................. 1484
5. Premature Appeals ............................................................................................................................... 1484
6. Former Habeas Filings ......................................................................................................................... 1484
7. Procedural Requirements When Filing .................................................................................................. 1485
B. No Automatic Stay ..................................................................................................................................... 1485
1. Generally ............................................................................................................................................. 1485
2. Contempt for Violating the Stay ........................................................................................................... 1486
3. Vacating Stay ...................................................................................................................................... 1486
4. Stay of Removal Is Not a Stay of VD ................................................................................................... 1486
5. Stay of Removal Does Not Stay Time Period to File Motion to Reopen ................................................. 1487
6. District Court Stay Pending Appeal ...................................................................................................... 1487
C. Bond/Bail Pending Petition for Review ...................................................................................................... 1487
D. Departure Does Not Bar Review ................................................................................................................ 1487
E. Stay of Voluntary Departure ....................................................................................................................... 1488
F. Venue .......................................................................................................................................................... 1489
G. Standard of Review .................................................................................................................................... 1491
H. Motions to Reopen/Reconsider................................................................................................................... 1491
I. Treatment of Nationality Claims .................................................................................................................. 1492
J. Consolidation of Issues for Review ............................................................................................................. 1492
K. Record on Appeal ....................................................................................................................................... 1492
L. Remands ..................................................................................................................................................... 1492
1. General Principles................................................................................................................................ 1492
2. Remand Unnecessary ........................................................................................................................... 1493
3. Review After Remand.......................................................................................................................... 1494
4. Evidence and Remands ........................................................................................................................ 1495
5. Scope of Remand ................................................................................................................................. 1495
6. Applicable Law on Remand ................................................................................................................. 1496
7. Stipulations and Remands .................................................................................................................... 1496
8. Government Request for Remand ......................................................................................................... 1496
9. Petitioner’s Request for Remand .......................................................................................................... 1496
10. Remand as a Final Order ...................................................................................................................... 1496
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
VI. Procedures for Review of Removal Decisions, cont’d
M. Judicial Notice ........................................................................................................................................... 1497
N. All Writs Act .............................................................................................................................................. 1497
O. Stay of the Mandate .................................................................................................................................... 1497
P. Scope ........................................................................................................................................................... 1497
VII. REVIEW OF SUMMARY REMOVAL ORDERS ................................................................................. 1497
VIII. CLASS TREATMENT
A. Generally .................................................................................................................................................... 1498
B. Subclasses ................................................................................................................................................... 1498
C. Class Treatment and Habeas ....................................................................................................................... 1498
D. Summary Exclusions under §235(b)(1) ...................................................................................................... 1498
E. Specificity ................................................................................................................................................... 1498
F. Class Treatment and Statutes of Limitation ................................................................................................ 1498
G. Class Treatment and Individual Representatives ........................................................................................ 1499
H. Class Treatment and Res Judicata .............................................................................................................. 1499
I. Class Treatment and the Law Applicable to the Class ................................................................................. 1499
J. Class Treatment and RICO Claims .............................................................................................................. 1499
K. Class Treatment and Pro Se Litigants ......................................................................................................... 1499
IX. APPEALABLE ORDERS........................................................................................................................... 1499
X. RULES OF STATUTORY CONSTRUCTION IN IMMIGRATION
A. Clarity of Statutory Language .................................................................................................................... 1499
1. Clear Language ................................................................................................................................... 1499
2. Literal Language of Statute .................................................................................................................. 1500
3. Context of Statutory Language ............................................................................................................. 1500
4. Title of the Statute or Section ............................................................................................................... 1500
5. No Superfluous Language .................................................................................................................... 1501
6. Presumption of the Law by Congress .................................................................................................... 1501
7. Silence in a Statute............................................................................................................................... 1501
8. The Last Antecedent Rule .................................................................................................................... 1502
9. Authoritative Interpretation .................................................................................................................. 1502
B. Omission/Inclusion of Language ................................................................................................................ 1502
C. Deportation Statutes/Ameliorative Statute .................................................................................................. 1502
D. Agency Deference ...................................................................................................................................... 1503
E. Principles Concerning More than One Statute ............................................................................................ 1503
F. Jurisdictional Limitations vs. Claims Processing ........................................................................................ 1504
G. Avoidance of Serious Constitutional Questions ......................................................................................... 1505
H. Congressional Intent ................................................................................................................................... 1505
I. Avoidance of Violation of International Law............................................................................................... 1505
J. Foreign Convictions ..................................................................................................................................... 1506
K. Retroactive Application .............................................................................................................................. 1506
1. Analytic Framework ............................................................................................................................ 1506
2. Regulations ......................................................................................................................................... 1507
3. Cases Denying Retroactive Application ................................................................................................ 1508
4. Cases Permitting Retroactivity ............................................................................................................. 1509
5. Constitutional Concerns ....................................................................................................................... 1510
L. Summary Judgment .................................................................................................................................... 1510
M. Pleading to Avoid Motion to Dismiss under Rule 12(b)(6) ....................................................................... 1511
N. Sovereign Immunity ................................................................................................................................... 1511
O. Void for Vagueness .................................................................................................................................... 1511
P. Rulemaking vs. Adjudication ...................................................................................................................... 1511
XI. EFFECTIVE DATES .................................................................................................................................. 1512
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CHAPTER 11
ACTIONS AGAINST GOVERNMENT OFFICIALS
I. CIVIL RIGHTS STATUTES
A. 42 U.S.C. §1983 ......................................................................................................................................... 1515
B. 42 U.S.C. §1981 ......................................................................................................................................... 1516
C. 42 U.S.C. §§ 1985 & 1986.......................................................................................................................... 1516
D. Civil Rights Complaints Filed Administratively ........................................................................................ 1516
II. FEDERAL TORT CLAIMS ACT (FTCA)
A. Generally .................................................................................................................................................... 1516
B. Procedural Issues ........................................................................................................................................ 1517
C. Jurisdiction in the Immigration Context ..................................................................................................... 1517
D. Exception: Intentional Torts ....................................................................................................................... 1518
E. Exception: Discretionary Acts .................................................................................................................... 1518
F. Actions Outside the U.S. ............................................................................................................................. 1519
G. Privilege ..................................................................................................................................................... 1519
H. Reasonableness ........................................................................................................................................... 1519
I. Damages...................................................................................................................................................... 1519
III. ACTIONS ARISING UNDER THE CONSTITUTION
A. Bivens Claims Generally ............................................................................................................................ 1519
B. Bivens Actions Against DHS ...................................................................................................................... 1520
C. Bivens Actions Barred Against PHS Officials ............................................................................................ 1521
D. Jurisdiction Over Bivens Claims in the Immigration Context..................................................................... 1521
E. Damages Under Bivens ............................................................................................................................... 1522
F. Actions Under Fifth Amendment Takings Clause....................................................................................... 1522
IV. PRIVACY ACT ........................................................................................................................................... 1522
V. ALIEN TORT CLAIMS ACT (ATCA) & TORTURE VICTIMS PROTECTION ACT (TVPA)
A. Pre-Sosa ATCA Case Law ......................................................................................................................... 1522
B. Post-Sosa ATCA Case Law ........................................................................................................................ 1523
1. Westfall Act Bars ATCA Claims? ........................................................................................................ 1524
2. Military Commissions Act §7 Bars All Non-Habeas Claims Against U.S. Government........................... 1524
3. Extraterritoriality ................................................................................................................................. 1524
C. Torture Victims Protection Act (TVPA) ..................................................................................................... 1525
1. Generally ............................................................................................................................................. 1525
2. Statute of Limitations ........................................................................................................................... 1525
3. Relationship Between ATCA and TVPA .............................................................................................. 1525
D. Actual or Apparent Authority / Color of Law and Aiding and Abetting for TVPA/ATCA Liability ......... 1525
a. War Crimes Exception ..................................................................................................................... 1526
b. Crimes That Are Private By Nature .................................................................................................. 1526
E. Extraordinary Rendition Claim ................................................................................................................... 1526
F. Corporate Liability Under ATCA or TVPA ................................................................................................ 1526
G. Jurisdiction and Service of Process ............................................................................................................ 1527
H. Exhaustion of Domestic Remedies and Comity under ATCA and TVPA .................................................. 1527
I. Forum Non Conveniens ............................................................................................................................... 1527
J. Political Question/Act of State Doctrine ...................................................................................................... 1527
K. Measuring Damages ................................................................................................................................... 1527
L. Pleading Standards ...................................................................................................................................... 1527
VI. TRAFFICKING VICTIMS PROTECTION REAUTHORIZATION ACT (TVPRA) ......................... 1528
VII. INTERNATIONAL TERRORISM STATUTES .................................................................................... 1528
VIII. TUCKER ACT ......................................................................................................................................... 1529
1513
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1514
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
IX. FOREIGN SOVEREIGN IMMUNITIES ACT (FSIA)
A. Sole Basis for Jurisdiction ................................................................................................................. 1529
B. Service of Process ....................................................................................................................................... 1529
C. Suits Against State Sponsors of Terrorism ................................................................................................. 1530
1. Former 28 U.S.C. §1605(a)(7) .............................................................................................................. 1530
2. National Defense Authorization Act for FY 2008 (NDAA) .................................................................... 1531
3. Scope of Conduct/Causality: Material Support ...................................................................................... 1532
4. Torture or Hostage Taking ................................................................................................................... 1532
5. Engagement in Military Hostilities Is Not Covered................................................................................ 1533
6. Damages ............................................................................................................................................. 1533
D. Retroactive/Extraterritorial Application ..................................................................................................... 1533
E. Head of State Immunity Not Eliminated ..................................................................................................... 1533
X. INTER-AMERICAN COMMISSION ON HUMAN RIGHTS ................................................................. 1534
XI. PRIVATE RIGHTS OF ACTION UNDER INA & TREATIES ............................................................. 1534
XII. DOCTRINE OF IMMUNITY
A. Qualified Immunity .................................................................................................................................... 1535
B. Absolute Immunity ..................................................................................................................................... 1536
C. Diplomatic Immunity.................................................................................................................................. 1536
XIII. ATTORNEY’S FEES
A. The Equal Access to Justice Act (EAJA) ................................................................................................... 1536
1. Legislative History .............................................................................................................................. 1536
2. Common Law Bad Faith Exception ...................................................................................................... 1537
3. Eligibility for Attorney’s Fees under EAJA ........................................................................................... 1537
a. Generally......................................................................................................................................... 1537
b. Jurisdiction ...................................................................................................................................... 1537
c. Eligible Parties ................................................................................................................................ 1537
d. Whose Fees Are They? .................................................................................................................... 1538
e. Prevailing Party ............................................................................................................................... 1538
f. Substantial Justification.................................................................................................................... 1540
g. Special Circumstances ..................................................................................................................... 1544
4. Proceedings Covered Under EAJA ....................................................................................................... 1544
a. Federal Litigation ............................................................................................................................ 1544
b. Administrative Proceedings .............................................................................................................. 1544
c. Naturalization/Citizenship Claims .................................................................................................... 1544
d. Criminal Proceedings ....................................................................................................................... 1545
e. Labor Certification........................................................................................................................... 1545
f. Employer Sanctions ......................................................................................................................... 1545
5. Submitting the EAJA Fee Application .................................................................................................. 1545
a. Filing Deadline ................................................................................................................................ 1545
b. Equitable Tolling of Filing Deadline ................................................................................................. 1545
c. The Fee Application......................................................................................................................... 1545
6. Calculating EAJA Fees ........................................................................................................................ 1546
a. Generally......................................................................................................................................... 1546
b. Cost of Living ................................................................................................................................. 1546
c. Special Factors ................................................................................................................................ 1546
d. Interest ............................................................................................................................................ 1548
e. Fees for Fees ................................................................................................................................... 1548
f. Fees for Certain Activities ................................................................................................................ 1548
g. Costs and Expenses.......................................................................................................................... 1548
h. Standard of Review.......................................................................................................................... 1548
B. Attorney’s Fees under Other Statutes ......................................................................................................... 1548
1. 42 U.S.C. §1988 .................................................................................................................................. 1548
2. FTCA .................................................................................................................................................. 1549
3. Bivens ................................................................................................................................................. 1549
4. FOIA .................................................................................................................................................. 1549
5. Fees for Employer Sanctions and Unfair Immigration Employment Proceedings ................................... 1549
6. Fees for Trafficking Victims ................................................................................................................ 1549
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CHAPTER 12
EMPLOYER SANCTIONS, UNFAIR IMMIGRATION-RELATED
EMPLOYMENT PRACTICES, AND LEGALIZATION
I. EMPLOYER SANCTIONS
A. Generally .................................................................................................................................................... 1553
B. Verification System (Form I-9) .................................................................................................................. 1555
C. Reverification of I-9 Forms ........................................................................................................................ 1558
D. Employer Violations ................................................................................................................................... 1559
E. Compliance Programs ................................................................................................................................. 1562
II. INVESTIGATION OF EMPLOYER SANCTIONS CASES
A. ICE Needs a Lead and Articulable Facts .................................................................................................... 1566
B. Random Audits ........................................................................................................................................... 1566
C. Worksite Enforcement Strategy .................................................................................................................. 1566
III. NOTICE OF INSPECTION (NOI)
A. Generally .................................................................................................................................................... 1567
B. Administrative Subpoenas and Enforcement .............................................................................................. 1567
C. Civil Search Warrants ................................................................................................................................. 1568
D. Warrantless Searches .................................................................................................................................. 1568
IV. ACTION SUBSEQUENT TO AUDIT ....................................................................................................... 1568
V. NOTICE OF INTENT TO FINE (NIF) ...................................................................................................... 1568
VI. HEARING PROCEDURES
A. Initiation of Proceedings ............................................................................................................................. 1569
B. Discovery .................................................................................................................................................... 1569
C. The Hearing ................................................................................................................................................ 1570
VII. DEFENSES
A. Good Faith and Substantial Compliance..................................................................................................... 1571
B. Independent Contractor............................................................................................................................... 1574
C. Casual Hires................................................................................................................................................ 1574
D. Statute of Limitations ................................................................................................................................. 1574
E. Improper Statutory Charge.......................................................................................................................... 1575
F. Employer in Multi-Employer Bargaining Unit............................................................................................ 1575
G. Grandfathered Employees .......................................................................................................................... 1575
H. Ultra Vires Regulations .............................................................................................................................. 1575
I. Constitutional Challenges ............................................................................................................................ 1575
VIII. DECISION/ORDER OF ALJ .................................................................................................................. 1575
A. Final Order ................................................................................................................................................. 1575
B. Settlement ................................................................................................................................................... 1575
C. Penalty Imposed ......................................................................................................................................... 1575
IX. PENALTIES
A. Generally .................................................................................................................................................... 1576
B. Enforcement of the Final Decision and Order ............................................................................................ 1576
C. Circumstances Warranting Mitigation or Aggravation of Penalties for Paperwork Violations .................. 1576
D. Calculating Fines for Paperwork Violations ............................................................................................... 1578
E. Indemnity Bond Penalty.............................................................................................................................. 1580
F. Debarment under Executive Order .............................................................................................................. 1580
G. Criminal Penalties ...................................................................................................................................... 1580
H. Defining Entity for Penalty Purposes ......................................................................................................... 1581
1551
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1552
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
X. ADMINISTRATIVE AND JUDICIAL REVIEW
A. Administrative Review ............................................................................................................................... 1581
B. Judicial Review........................................................................................................................................... 1581
C. Attorney’s Fees ........................................................................................................................................... 1581
D. Preemption ................................................................................................................................................. 1582
E. Constitutionality.......................................................................................................................................... 1582
F. Effective Dates ............................................................................................................................................ 1582
XI. EMPLOYMENT AUTHORIZATION
A. Generally .................................................................................................................................................... 1582
B. Persons Authorized for Employment Incident to Status ............................................................................. 1582
C. Persons Authorized for Employment with a Specific Employer Incident to Status .................................... 1583
D. Persons Enlisted in Armed Forces .............................................................................................................. 1583
E. Persons Who Must Apply for Employment Authorization ......................................................................... 1583
F. Battered Spouses and Children.................................................................................................................... 1583
G. Nonimmigrant Extensions / Change of Employer / Change of Status ........................................................ 1583
H. Professional Athletes .................................................................................................................................. 1584
I. Asylum and Employment Authorization ...................................................................................................... 1584
J. Students ....................................................................................................................................................... 1584
K. Persons in Proceedings, Ordered Removed ................................................................................................ 1584
L. NIW Physicians .......................................................................................................................................... 1584
M. Applicants for Cancellation ....................................................................................................................... 1584
N. Parolees ...................................................................................................................................................... 1584
O. Applicants With Final Order Under Supervision ........................................................................................ 1584
P. Procedure for Obtaining Employment Authorization Document (EAD)..................................................... 1585
Q. Termination and Revocation of Employment Authorization ...................................................................... 1585
R. Employment Authorization as a Constitutional Right ................................................................................ 1585
XII. EMPLOYMENT / LABOR RIGHTS
A. Protection under the National Labor Relations Act (NLRA) ...................................................................... 1585
B. Protection under FLSA, MSPA, and LHWCA ........................................................................................... 1588
C. Protection Under State Workers’ Compensation Laws ............................................................................... 1589
D. Protection Under Title VII and State Anti-Discrimination Laws................................................................ 1589
E. Protection under the Age Discrimination in Employment Act (ADEA) ..................................................... 1590
F. Right to Lost Wages in Civil Litigation ...................................................................................................... 1590
G. Discovery Issues Involving Undocumented Plaintiffs ................................................................................ 1591
H. Trafficking Victims Protection Reauth. Act (TVPRA) & Alien Tort Claims Act (ATCA) ........................ 1591
I. Civil RICO Actions...................................................................................................................................... 1591
XIII. UNFAIR IMMIGRATION-RELATED EMPLOYMENT PRACTICES
A. Scope and Purpose ...................................................................................................................................... 1592
B. Procedures .................................................................................................................................................. 1596
XIV. LEGALIZATION UNDER INA §245A
A. Scope and Coverage ................................................................................................................................... 1602
B. Application Procedures ............................................................................................................................... 1608
C. Administrative and Judicial Review ........................................................................................................... 1610
D. Family Unity Program ................................................................................................................................ 1611
E. Second Stage of Legalization: Permanent Residency ................................................................................. 1613
XV. LIFE ACT ADJUSTMENT....................................................................................................................... 1614
XVI. LEGALIZATION FOR SPECIAL AGRICULTURAL WORKERS (SAWS)
A. Scope and Coverage ................................................................................................................................... 1616
B. Procedures for SAW Status ........................................................................................................................ 1617
C. Procedures for Permanent Residence .......................................................................................................... 1617
D. Travel and Employment ............................................................................................................................. 1618
E. Termination of Status .................................................................................................................................. 1618
F. Removal Proceedings .................................................................................................................................. 1618
G. Apprehension.............................................................................................................................................. 1618
H. Administrative and Judicial Review ........................................................................................................... 1618
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CHAPTER 13
NATURALIZATION AND CITIZENSHIP
I. ELIGIBILITY FOR CITIZENSHIP
A. Citizenship by Birth in the U.S. or Certain Incorporated Territories .......................................................... 1621
B. Citizenship by Acquisition at Birth............................................................................................................. 1622
1. Generally ............................................................................................................................................ 1622
2. Residence or Physical Presence of the USC Parent ................................................................................ 1622
3. Elimination of Retention Requirement .................................................................................................. 1622
4. Children Born Out of Wedlock ............................................................................................................. 1623
5. Adopted Children ................................................................................................................................ 1623
6. Procedures and Burden of Proof ........................................................................................................... 1623
C. Citizenship by Derivation through the Naturalization or U.S. Birth of One Parent .................................... 1624
D. Certificate of Citizenship under INA §322 ................................................................................................. 1627
E. Citizenship by Naturalization ...................................................................................................................... 1628
F. Citizenship by Otherwise Filing a Certificate of Citizenship ...................................................................... 1628
II. ELIGIBILITY FOR NATURALIZATION BY APPLICATION
A. Criteria for Naturalization .......................................................................................................................... 1628
1. Lawful Permanent Resident.................................................................................................................. 1628
2. 18 Years or Older ................................................................................................................................ 1629
3. Satsfaction of Continuous Residence and Physical Presence Requirements ............................................ 1629
4. Good Moral Character ......................................................................................................................... 1631
5. Attachment to Principles of Constitution, Well-Disposed to Good Order and Happiness of U.S. ............. 1637
6. Willingness to Bear Arms, Perform Noncombatant Service or Work of National Importance .................. 1637
7. Not Otherwise Barred .......................................................................................................................... 1637
8. Demonstration of Knowledge of English Language, U.S. History, and Government ............................... 1638
B. Other Naturalization Programs ................................................................................................................... 1639
1. Veterans/Military Service..................................................................................................................... 1639
2. Posthumous Citizenship through Death While on Active Duty Service................................................... 1641
3. Filipino War Veterans .......................................................................................................................... 1642
4. Persian Gulf Veterans .......................................................................................................................... 1642
5. Hmong Veterans’ Naturalization Act .................................................................................................... 1642
6. Extraordinary Contributions to National Security .................................................................................. 1642
7. Expedited Naturalization ...................................................................................................................... 1642
III. APPLICATION PROCEDURE
A. Administrative Naturalization .................................................................................................................... 1642
B. Filing of Application................................................................................................................................... 1643
C. Expedited Processing of Naturalization of Children of USCs .................................................................... 1644
D. Priority Processing for SSI Recipients........................................................................................................ 1644
E. Oath of Allegiance ...................................................................................................................................... 1644
F. Expedited Oath ............................................................................................................................................ 1644
G. Correcting Certificate ................................................................................................................................. 1645
H. Obtaining a Passport ................................................................................................................................... 1645
I. Cancellation of Passport ............................................................................................................................... 1646
J. Invalidity, Revocation, or Refusal to Issue Passport .................................................................................... 1646
K. Amending and Replacing Passports ........................................................................................................... 1647
L. Information Regarding Passport Holders .................................................................................................... 1647
M. Administrative Review of Passport Denial ................................................................................................ 1647
N. Noncitizen Nationals of the U.S. ................................................................................................................ 1647
IV. DUAL CITIZENSHIP................................................................................................................................. 1647
1619
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KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 13TH ED.
V. LOSS OF CITIZENSHIP
A. Grounds for Denaturalization ..................................................................................................................... 1648
1. Membership in Certain Organizations; Prima Facie Evidence ............................................................... 1648
2. Concealment of Material Evidence or Willful Misrepresentation............................................................ 1648
3. Illegal Procurement .............................................................................................................................. 1649
4. Subversive Activities ........................................................................................................................... 1650
5. Military Service Denaturalization ......................................................................................................... 1650
B. Denaturalization Procedure......................................................................................................................... 1650
1. Court Proceedings................................................................................................................................ 1650
2. Administrative Revocation ................................................................................................................... 1651
3. Revocation after Conviction for Naturalization Fraud ............................................................................ 1651
4. Effect on Family Members of Denaturalization ..................................................................................... 1651
5. Cancellation of Certificate .................................................................................................................... 1651
C. Voluntary Relinquishment of U.S. Citizenship ........................................................................................... 1652
1. Generally ............................................................................................................................................ 1652
2. Burden of Proof ................................................................................................................................... 1652
3. Relinquishment Voluntary and Intentional ............................................................................................ 1652
4. Presumption Against Expatriation ........................................................................................................ 1652
5. Loss of Citizenship and LPR Status ...................................................................................................... 1653
VI. ADMINISTRATIVE AND JUDICIAL REVIEW
A. Administrative Review ............................................................................................................................... 1653
1. Appeal of Naturalization Denial ........................................................................................................... 1653
2. Loss of Nationality / Passport Denial, Revocation, Restriction ............................................................... 1653
3. Administrative Review to Deny, Revoke, Restrict, or Invalidate a Passport ............................................ 1653
B. Judicial Review........................................................................................................................................... 1654
1. District Court Review of Naturalization Denial ..................................................................................... 1654
2. Court Intervention Where USCIS Fails to Act ....................................................................................... 1654
3. Applicant in Removal Proceedings ....................................................................................................... 1656
4. Cancellation or Revocation of a Passport or Declaration of Citizenship .................................................. 1656
5. Denaturalization Cases ......................................................................................................................... 1656
6. Denial of Certificate of Citizenship....................................................................................................... 1656
7. Loss of Citizenship .............................................................................................................................. 1656
8. Claim of Citizenship Arising in Review of Removal Proceeding ............................................................ 1657
VII. CRIMINAL MATTERS RELATED TO CITIZENSHIP
A. Procuring Naturalization in Violation of Law ............................................................................................ 1658
B. Criminal Penalty for False Claim to U.S. Citizenship or False Statement for Naturalization ..................... 1659
C. Other Criminal Offenses Related to Citizenship ......................................................................................... 1660
1. Identification Document Fraud ............................................................................................................. 1660
2. Fraud and Related Activity in Connection with Identification Documents .............................................. 1660
3. Knowing and Willful Use of a False Passport........................................................................................ 1660
4. Knowing and Willful False Statement to Obtain a U.S. Passport ............................................................ 1660
5. Failure to Disclose Role as Document Preparer ..................................................................................... 1660
6. Aggravated Identity Theft in Conjunction with Immigration Crimes ...................................................... 1660
7. Criminal Penalty for Voting by Alien in Federal Election ...................................................................... 1660