NYLS Journal of Human Rights Volume 10 Issue 2 VOLUME X SPRING 1993 PART Two Article 4 1993 HAITIAN ASYLUM ADVOCACY: QUESTIONS TO ASK APPLICANTS AND NOTES ON INTERVIEWING AND REPRESENTATION Steven Forester Follow this and additional works at: https://digitalcommons.nyls.edu/journal_of_human_rights Part of the Law Commons Recommended Citation Forester, Steven (1993) "HAITIAN ASYLUM ADVOCACY: QUESTIONS TO ASK APPLICANTS AND NOTES ON INTERVIEWING AND REPRESENTATION," NYLS Journal of Human Rights: Vol. 10 : Iss. 2 , Article 4. Available at: https://digitalcommons.nyls.edu/journal_of_human_rights/vol10/iss2/4 This Article is brought to you for free and open access by DigitalCommons@NYLS. It has been accepted for inclusion in NYLS Journal of Human Rights by an authorized editor of DigitalCommons@NYLS. HAITIAN ASYLUM ADVOCACY: QUESTIONS TO ASK APPLICANTS AND NOTES ON INTERVIEWING AND REPRESENTATION Steven Forester* L Introduction Thousands of Haitians fled their homeland after Jean-Bertrand Aristide, Haiti's first democratically-elected president, was ousted in September 1991.1 They were intercepted by United States Coast Guard vessels,2 detained at Guantfnamo Bay, Cuba,3 and interviewed by INS officers who determined whether they should be brought to the United States to pursue their asylum claims.' At first the officers "screened out" most of the Haitians, and massive repatriations from Guantdnamo were halted only by a series of restraining orders issued by a Florida federal district court judge.' While the restraining Supervising Attorney at the Haitian Refugee Center, Inc., 119 NE 54th Street, Miami, FL 33137; B.A., University of California at Berkeley, 1975; J.D., University of California at Davis, 1978. A version of this article first appeared in The Immigration Newsletter, vol. 20, nos. 1 & 2 (June and August 1992), published by the National Immigration Project of the National Lawyers Guild. The author wishes to thank Richard landoli, Chin Wei Fong, and Deborah Anker for their suggestions, and especially, for invaluable expert assistance in the revision and updating of the article for publication in this Journal, including the use of his Haitian History Dateline, infra Appendix A, and Haitian Words and Concepts, infra Appendix B, Merrill Smith of Church World Service in Miami. Any errors remain the author's alone. Deborah Sharp, Haitian Refugees see Hope with a New Administration, USA TODAY, Nov. 27, 1992, at 3A. Since September 1991, nearly 40,000 Haitians have fled their country. Id. 2 Id. I Id. 4 Id. The interviews were conducted to determine if the Haitians could seek asylum in the United States as political refugees. Id. ' Jerry Seper, Future of Haitian Refugees Still Unclear, WASH. TIMES, Dec. 3, 1991, at A3. United States District Judge C. Clyde Atkins issued the temporary restraining order, but not before 538 Haitian refugees had been returned to Haiti. Id. 351 352 NYLS JOURNAL OF HUMAN RIGHTS [Vol. X orders were in effect, the percentage of Haitians "screened in" began to rise." The Supreme Court now has vacated all lower court restraints,7 most of the Haitians have been repatriated, and Congress has refused to intervene! Nevertheless, thousands of Haitians have been "screened in" to pursue asylum claims in the United States. 9 This article will address background facts on Haiti, basic principles about conducting Haitian asylum interviews, the institutional setting and the need for quality control, questions to ask Haitian asylum applicants, interview principles and techniques, completing the asylum forms and checking for mistakes, preparing for the INS interview, and the possibility of filing an application late. Among the many obstacles (e.g., culture shock, failure to use phrase-by-phrase interpretation, fear of you as an authority figure, fear of your interpreter as a possible Haitian spy, etc.) to obtaining the full story from your client, which is necessary for a well- developed claim, one insurmountable obstacle is your own ignorance of the historical and social context of Haitian political events over the last decade, an obstacle which you must overcome by learning about it before you ever sit down with your client. A client won't give you a full explanation, and you won't understand and will misconstrue and misinterpret the explanation he or she gives, unless you "know" Haiti, and if your client senses that you "won't understand." You must be intimately familiar with Haiti's recent political history and with the entire world of contexts and possibilities, and you must take the initiative in intelligently asking about and discussing them with your client. Otherwise you won't uncover the story; indeed, you won't have any idea what you're doing, and you will be doing your client a tremendous disservice. Your intimate knowledge will give ' See Thomas Sceffey, Yale Students Win Rights for Refugees in Cuba, CONN. L. TRIB., Apr. 13, 1992, at 13. ' See Deborah Sharp, Haitian Refugees see Hope with a New Administration, USA TODAY, Nov. 27, 1992, at 3A. 'See Islands of Inequality, WASH. POST, Nov. 4, 1992, at A18 ("All three branches of the federal government share responsibility for [repatriation of Haitians]."). 9 United States asylum officers on GuantAnamo "screened in" about 10,734 Haitians, permitting them to pursue individual asylum applications in the United States, and "screened out" about 28,000 others, who were forcibly repatriated to Haiti, where hundreds or thousands of them have undoubtedly been persecuted. See David G. Savage, High Court to Hear Haitian Refugee Case, L.A. TIMES, Oct. 6, 1992, at AS. 1993] HAITIAN ASYLUM ADVOCACY 353 your client confidence that you understand or at least know enough to learn. A. Background Facts on Haiti: The Duvaliers to Mid-1990 ° The Tonton Macoutes (Volunteers for National Security or VSN) were created by Francois (Papa Doc) Duvalier in the 1960s and used by his son Jean-Claude (Baby Doc) Duvalier until his ouster in 1986 as a paramilitary political force to maintain their rule and offset the power of Haiti's mulatto dominated army, Haiti's traditional kingmakers." In exchange, Macoutes terrorized common Haitians with impunity, arbitrarily killing, imprisoning, or abusing personal enemies, falsely accusing persons of being "anti-Duvalier," expropriating land and businesses, extorting goods and money, and raping." Haiti has often been called a "kleptocracy," a government by thieves.' 3 Popular pressure finally ousted Jean-Claude Duvalier on February 7, 1986.' His hand-picked successor, General Henry Namphy, became a dictator.' 5 The Macoutes were never disarmed; Namphy announced but never effectuated their dissolution, incorporating many into the military. t6 Others formed paramilitary groups serving Duvalierists, 7 landowners,'" and their own predatory 10 For a general synopsis of the history of Haiti with a description of their significance, see Haitian History Dateline, infra Appendix A. For a glossary of commonly used words and concepts used in Haitian asylum cases, see Haitian Words and Concepts, infra Appendix B. " Clara Germani, Violence Derails Haiti Elections, CHRISTIAN SCI. MONITOR, Nov. 30, 1987, at 1. 2 Nathaniel Sheppard Jr., Haitians Being Ruled by Promises, CHI. TRm., Oct. 9, 1988, at C5. " David Adams, Haiti Living Down to its CorruptHistory, S.F. CHRON., Oct. 14, 1992, at A10. See also discussion of Desir v. lchert, infra notes 140-43 and accompanying text. " Mark Kurlansky, Words No Longer Enough in City of Poets, CHI. TRIB., June 2, 1988, at C6. " Gary Marx, HaitianLeaders Believe They Can Trust Army Vow, CHI. TRIB., Mar. 25, 1990, at 4. 16 Id. '7 Robert Pear, U.S. Officials say New Haiti Rulers are About Like the Old Ones, N.Y. TIMES, Sept. 19, 1988, at All. 354 NYLS JOURNAL OF HUMAN RIGHTS [Vol. X interests.1 9 , Namphy's rule was bloody -- the streets were full of the bodies of persons killed by soldiers and by former Macoutes, ° who were also known as "attaches," "Zenglendo," and "the motherless ones." 2' Haitians came to refer to the constant random violence as "the insecurity," 22 which most observers thought Namphy fostered to thwart democratic change. Under international pressure, Namphy scheduled elections for November 29, 1987.23 The Haitian Christian Democratic Party's (PDCH) Sylvio Claude, imprisoned many times by Duvalier, was a leading democrat. 4 Other candidates were Marc Bazin of the Movement for the Institution of Democracy in Haiti (MIDH), Louis Dejoie of the National Agricultural Industrial Party (PAIN), and Gerard Gourge of the National Concentration Front (FNC).25 In the months before the election, the military terrorized the Provisional Electoral Commission (CEP), an independent civilian body created by the March 1987 Constitution, and opposition figures, murdering presidential candidates Louis Eugene Athis26 and Yves Volel, the latter in front of police headquarters.2 On election day military and " Michael S. Hooper & Anne Manuel, The U.S. Role in Haiti's Debacle, N.Y. TIMES, Nov. 16, 1987, at A19. "9See Marlene Sokol, New Leaders Met With Mixed Emotions in Haiti, ST. PETERSBURG TIMES, Oct. 2, 1988, at IA. 1oJulia Preston, Gunmen Operated out of Haitian Mayor's House, WASH. POST, Sept. 26, 1988, at A9. 21 Id. See also Lee Hockstader, Military Keeps Haitian Town on Tight Rein, WASH. POST, Mar. 17, 1992, at All. The "motherless ones" ("San Manman" or literally '!without mothers") appears to be particular to the macoutes of the St. Marc area. See AMNESTY INTERNATIONAL, CURRENT CONCERNS: DEATHS AND DETENTION, TORTURE, AND INHUMANE PRISON CONDITIONS (1987). 2'Debbie Sontag, Violence, ProtestRise Again in Haiti, MIAMI HERALD, July 15, 1990, at LA. I Haiti Sees Constant Turmoil Since Duvalier, Reuters, Apr. 2, 1989, available in LEXIS, Nexis Library, Omni File. 24 Louis Dejoie, To Foil Haiti's Election Charade, N.Y. TIMES, Jan. 15, 1988, at A31. Sid. Caribbean: U.S. Finds Limited Human Rights 'Progress in 1988, Inter Press Service, Feb.