LIFEUNDER“PEP‐COMM”
OnNovember20,2014,PresidentObamaannouncedthe“end”ofthemuchreviled
SecureCommunities(SComm)program.Initsplace,DHScreatedthe“Priority
EnforcementProgram”orPEP.PEPworksexactlythesamewayasSecure
Communities.IttracksfingerprintsandhelpsICEagentsissuedetainersandretrieve
peoplefromlocaljails.ThisadvisoryexplainsthePEPformsandoperations.
ThebasicmechanismsofSecureCommunitiesremaininplaceunderPEP.Whenapersonis
arrested,thepolicetaketheirfingerprints.AllfingerprintstakenbypolicearesenttoICEtocheck
againstimmigrationdatabases,andthelocalICEofficeisnotifiedifthereisamatch.IfICEwantstotake
actionagainstthearrestedperson,ICEissuesacustodyrequest,akadetainer,tothelocaljail.Acustody
requestmayaskthejailtoletICEknowwhenthepersonwillbereleased(calleda“notification
request”).ItmayalsorequestthejailtoholdthepersonforextratimetoallowICEtocomegetthem
(calledan“ICEhold”).ThisisexactlythesameinPEPasinS‐Comm.
RememberthatSComm/PEPisNOTtheonlyavenueforICEtoissuerequeststolocalagencies.
Seewww.ilrc.org/enforcementtolearnaboutotherICEenforcementprograms.
Whathaschanged?
1.NEWICEDETAINERFORMS
ICEhasrearrangedtheirICEholdformintothreeforms:anotificationrequest,aholdrequest,anda
catchallrequest.(Theolddetaineraskedforbothnotificationofreleaseandtoholdthepersonfor
transfertoICE.Nowthathasbeendividedintotwoforms,plusathird‘catchall’form.)
I‐247D ICE
TheseareallICE
IMMIGRATION
HOLD
Detainers.
I‐247ICE
REQUEST
IMMIGRATION
~~~~
Alltheseforms
DETAINER
havethesame
~~~~
I‐247N
(a.k.a.ICEhold)
function:tohelp
ICE
ICEapprehend
1. NotifyICEofthis
REQUESTFOR
person’sreleasedate
someonefrom
NOTIFICATION
2. Holdfor48hoursfor
OFRELEASE
localjail.
ICEtotakecustody
~~~~
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~~~
I‐247X ICE
CATCHALL
CUSTODY
REQUEST
Wealsocallthem
ICECustody
Requests,orPEP
CustodyRequests.
~~~~
1
WithICEholdrequests,thejaildetainsapersonlongertobeabletohandthemdirectlyover
toICEagents.WithICEnotificationrequests,ICEagentsplantoarriveatthejailrightatthe
momentwhenthepersonisscheduledtobereleased,sotheywillbetransferredtoICErightat
thattime.Thecatchallrequestmayservetodoeitherfunction,butprovidesoptionsforICEto
ignorethenewenforcementpriorities.
AllthesePEPformshelpICEapprehendsomeonefromlocaljail,
justlikeSComm.
2. ENFORCEMENTPRIORITIES
ICEclaimsthatICEholdsandrequestsfornotificationwillonlybeforthosewhofallwithincertain
enforcementpriorities: PRIORITY 1
• gangmembers
• onefelonyconviction
• oneaggravatedfelonyconviction(definedunderimmigrationlaw)
• suspectedofterrorism,espionage,orthreattonationalsecurity
PRIORITY 2
• Significantmisdemeanorconvictions:
• DUI‐ drivingundertheinfluenceofalcoholordrugs
• Domesticviolence
• Gun‐related
• Drugsale
• Sexualabuse
• Burglary(unlawfulentryofabuilding+theft)
• Anyotherconvictionifsentencedto90daysormoreinjail
• Threeormoremisdemeanorconvictionsofanykind,except
minortrafficoffensesorjuvenileoffenses
Wedonothaveto
acceptICE’s
enforcement
priorities.
Wecanfighttokeep
ourcommunities
andfamilies
togetherandinsist
thatICErespectthe
dignityand
humanityofall
immigrants.
Allbuttwooftheseprioritiesrequirethepersontobeconvictedofacrime,notjustfacingcharges.
AdvocatesshouldfighttomakeICEliftdetainersthatdon’tfollowtheirownpriorities,includingwhen
ICEputsdetainersonpeoplewhohaveonlybeenarrestedorchargedwithacrime.However,ICEoften
usesthecatchallI‐247Xtoputdetainersonpeoplechargedwithacrime,butwhohavenotbeen
convicted,aswellasothernon‐priorityimmigrants.Theycallita“federalinterestexception.”
CommunitiesneedtomonitortheirlocaljailstotrackwhenICEisreally
issuingdetainersandnotificationrequests,anddemandthatICEbe
accountable.Itisuptoorganizersandcommunitiestoremainvigilantand
torecordwhattheyareseeing.PEPhasbeendesignedtomakethis
monitoringharderforyou.
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WhathasNOTchanged?
1. LEGALITYOFICEDETAINERS
Thelawhasn’tchangedonICEdetainers,justtheform.Federalcourtshavefoundthatholding
someoneonadetainerisanarrestthatviolatestheFourthAmendment,anditisunlikelythat
changestotheformwillhaveasignificanteffectontheconstitutionalissues.ButsinceICEisstill
tryingtoco‐optlocallawenforcementintoidentifyinganddetainingimmigrantsforthem,local
policiesagainstICEdetainersandnotificationsarestillveryimportant.
2. INFORMATIONSHARING
SComm=PEP.S‐Commwasdismantledinname,butinfactitcontinuesinpracticeas“PEP.”
TheFBIwillcontinuesharingfingerprintswiththeDepartmentofHomelandSecuritysothatICE
canstilldetectimmigrantsinlocalandstatelawenforcementcustody.ThisfacilitatesICE’sability
toissuedetainerrequestsornotificationrequests–andittriggersICE’sattentionatthemomentof
arrest.ICEhasnotchangedanyofSComm’sarchitecture.
AttheheartofICE’scooperationwithlocallaw
enforcementiscommunicationandinformationsharing.
Cooperationwithlocallawenforcement:ICEwillcontinuetrackingimmigrantsthroughPEPand
throughallitsformalandinformationrelationswithlocallawenforcement.
ICEwillcontinueinvolvementwithlocaljailsthroughPEPfingerprintsharingand
programsliketheCriminalAlienProgram(CAP)and287(g).Allthesejail‐related
programshelpICEgatherinformation,track,andapprehendmoreimmigrants.
CriminalAlienProgram:ICE’sbedrockprogram,theCriminalAlienProgram(CAP),showsnosignsof
slowingdown.ThroughCAP,ICEagentsgetaccesstolocaljaildatabases,interviewlocalinmatesabout
theircitizenship,receivedailyupdatesfromlocaljails,andhavemanyothertypesofformaland
informalcollaboration.ICEreceivesdataonwhohasbeenbookedintojail,whethertheywereborn
outsidetheU.S.,whentheiranticipatedreleasedatewillbe,andotherinformationabouttheircase.PEP,
CAP,andalltheseprogramshelpICEgatherinformationandapprehendmoreimmigrants.
ICEwillstillbeusinglocaljailsasadragnet.EvenastheyclaimtobereformingthingswithPEP,ICE
isreachingouttolocallawenforcementagenciesacrossthecountrytorebuildandexpandtheir
relations.ICEisalreadyusingPEPtostationmoreagentsinlocaljailsandtoincreasecommunication
andinformationsharingbetweenlocaljailsandICEfieldoffices.
WhenICEisinthejailalready,theydon’tneeda
detainerornotificationofrelease.
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WhatelsehasNOTchanged?
3. ICEISAROGUEAGENCY
ICEisarogueagencythatdoesnotfollowitsownpolicies.ICEagentsarehappytoignorethe
constitutionandleavelocallawenforcementtotakeresponsibility.
Wherecommunitieshaverefusedtoholdpeople,ICEisaskingforlimitedagreementsjusttogetthose
jurisdictionsbackundertheirthumb.ButthereisnoaccountabilitybyDHStolimitwhatICEfield
officeswilltrytogetfromlocallawenforcement.ICEwillcontinuetouseanymeanstotrackpeople
downanddetainthem.ItisuptocommunitiestostandagainstICEinfiltrationofthecriminaljustice
system.
LocalICEholdpoliciesstillmatter!
ICEwillcontinuetouseholdrequeststoasklocaljailtodetainpeopleforICEtopickup.
LocalICEholdlawswillstillaffectwhenajailmayholdsomeoneforICE.Weneedto
strengthentheselocalpoliciestoadapttoICE’schangingpractices.
LimitingICEaccesstoinmatesandotherinformationsharingwillbecomemore
importanttolimitdeportations.
4. MASSINCARCERATIONANDMASSDEPORTATION
Communitiesofcoloraredisproportionatelytargetedbylawenforcement.ICE’slocalenforcement
effortscontinuetointensifythisdynamic,aspoorandbrowncommunitiesarefunneledfromanunjust
criminaljusticesystemintoanimmigrationdeportationsystemthatlackseventhemostbasicdue
processprotections.Immigrantcommunitiesofcoloraretargetedtwo‐fold;basedonraceand
immigrationstatus.Overandover,thegovernment’sfirstresponsetodealingwithpeopleofcoloris
throughincarceration.ICEdetentionandcollaborationwithlocaljailsonlymakesitharderforpeople
toescapethesystem.
PEPisnotnew,it’smoreofthesame.PEPrepresentscosmeticchangesto
detainerformsandyetanotherrevisedlistofenforcementpriorities,inan
increasinglylonglineofignoredprioritieslists.PEPmerelycontinuesICE’s
effortstoentwineimmigrationenforcementwithlocalpolicing,attheexpenseof
immigrantcommunities.
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4
PEPNOTIFICATION
FORM – I‐247N
Missing:
1. NorequirementtotellthedetaineethatthereisanotificationrequestfromICEplacedonthem.Thepersonwillhaveno
wayofknowingthatthereisanotificationrequestonthemorwhatitsays.
2. Noprocessforthesubjectoftherequesttocontesttheinformationorallegationsmadeontheform.
Thesearethe
PEPpriorities
(mostlythe
sameasthe
overall
enforcement
priorities,but
focusedon
thosewhoare
mostlikelyto
beinlocal
custody)
Thisform
requestsnotice
forICEasfar
beforerelease
aspossible.
Thisformdoes
notrequest
extradetention,
butICEmayalso
issueahold
requestonthe
samepersonat
anytime.
It’snotclear
whatevidence
ICEwilluseto
determinethis
orwhether
thereisany
checkonifitis
correct.
ICEsaysthis
formshould
notaffectbail
orother
custody
decisions.In
practice,
however,
courtsandjails
usedetainers
againstpeople.
Norequestfor
deliveryto
detainee.It
appearsthatICE
hopestoissue
notification
formswithout
accountabilityto
thoseaffected.
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PEPHOLDREQUEST FORM – I‐247D
Missing: 1. ThePEPmemorequires“specialcircumstances”toissueadetainer.Butthisformdoesnotdescribeanyspecialcircumstances.
2. Bystatute,ICEcanonlymakeawarrantlessarrest(whichiscausedbyadetainer)ofsomeonewhoislikelytoescapebeforea
warrantcanbeobtained.Howeverthisformdoesnotindicateanythingaboutlikelihoodofescape.
Thesearethe
PEPpriorities
(mostlythe
sameasthe
overall
enforcement
priorities,but
focusedon
thosewhoare
mostlikelyto
beinlocal
custody)
ICEassertsthey
haveprobable
cause,butthereis
noreviewbya
judgeorneutral
magistrateas
requiredbythe
4thAmendment.
New:“This
requesttakes
effectonlyifyou
serveacopyof
thisformonthe
subjectanddoes
notrequestthat
youholdthe
subjectbeyond48
hours.”
ICEcannot
compelthelocal
agencyto
completethis
sectionorreturn
ittoICE.But
manypoliceand
sheriffswill
complyunless
thereisaspecific
policyenacted
againstit.
ILRC2016
It’snotclear
whatevidence
ICEwilluseto
getthis
informationor
whetherthereis
anycheckonifit
iscorrect.
Theseare
basicallywhat
ICEdoesnowif
theyare
investigating
someone,but
theyarenot
specificfacts
amountingto
probablecause.
ICEsaysthis
formshouldnot
affectbailor
othercustody
decisions.In
practice,
however,courts
andjailsoften
usedetainers
againstpeople.
Requeststhe
localagencyto
signthatthe
detainerwas
servedonthe
detainee.
Howeveritisnot
clearwhatICE
willdoifthis
noticeisnot
providedtothe
detainee.
6
PEPCATCHALLDETAINERFORM – I‐247X
Missing: 1. ThePEPmemorequires“specialcircumstances”toissueadetainer.Butthisformdoesnotdescribeanyspecialcircumstances.
2. Norequirementthatthejailserveacopyofthedetaineronthesubjectinorderforittobevalid.
3. Bystatute,ICEcanonlymakeawarrantlessarrest(whichiscausedbyadetainer)ofsomeonewhoislikelytoescapebeforea
warrantcanbeobtained.Howeverthisformdoesnotindicateanythingaboutlikelihoodofescape.
Thesearethe
Enforcement
Prioritiesthat
were
specifically
EXCLUDED
fromPEPand
shouldnotget
detainers.
ICEassertsthey
haveprobable
cause,butthereis
noreviewbya
judgeorneutral
magistrateas
requiredbythe
4thAmendment.
Thedetainer
onlyrequires
serviceonthe
subjectifit
requestsa48
hourhold,but
notifDHS
requestsnotice
ofrelease.And
thereisno
language
clarifyingthat
therequestis
notvalidifnot
servedonthe
subject.
ILRC2016
Thereisno
definitionof
“important
federalinterest”
andnoclear
reviewprocess
forissuinga
detaineronthis
basis.
Theseare
basicallywhat
ICEdoesnowif
theyare
investigating
someone,but
theyarenot
specificfacts
amountingto
probablecause.
ICEsaysthis
formshouldnot
affectbailor
othercustody
decisions.In
practice,
however,courts
andjailsoften
usedetainers
againstpeople.
7
Ratherthan
contacting
DHS,
detainees
subjecttoan
ICEdetainer
should
contactan
immigration
lawyeror
theirpublic
defenderfor
help.
Thispageisfor
thelocaljailto
providetothe
detainee.
Howeveritis
unclearifthat
meansthatthe
firstpage,
containingDHS’s
claimsaboutthe
person,would
notbegivento
them.Without
knowingwhat
allegationsDHS
makes,the
detaineehasno
wayof
challenging
them.
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