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February 2021 Ai JURISDICTION OVER IMMIGRATION JURISDICTION OVER IMMIGRATION PETITIONS AND STANDARDS OF REVIEW Table of Contents I. OVERVIEW ....................................................................................................1 II. APPLICABLE STATUTORY PROVISIONS................................................ 2 III. GENERAL JURISDICTIONAL PROVISIONS ............................................ 3 A. Commencement of Proceedings ............................................................ 3 B. Petition for Review Exclusive Means for Judicial Review over Final Orders of Deportation and Removal ..................................................... 6 C. Final Order of Deportation or Removal ................................................ 8 1. Definition ....................................................................................8 2. Scope of “Final Order” of Deportation or Removal .................12 D. Timeliness ...........................................................................................14 1. Petitions for Review ..................................................................14 2. Habeas Appeals .........................................................................15 E. Venue ...................................................................................................16 F. Stay Issues ...........................................................................................16 1. No Automatic Stay of Removal Pending Review ....................16 2. Voluntary Departure Stays ........................................................17 3. Stay of the Court’s Mandate .....................................................19 G. Exhaustion ...........................................................................................20 1. Exceptions to Exhaustion ..........................................................24 a. Constitutional Challenges ................................................24 b. Futility and Remedies “Available … As of Right” .........26 c. Nationality Claims ...........................................................27 d. Events Occurring after Briefing before the Board ...........27 e. Habeas Review .................................................................27 H. Departure from the United States ........................................................27 1. Review of Removal Orders .......................................................27 February 2021 A-i 2. Review of Motions to Reopen ..................................................29 I. Fugitive Disentitlement Doctrine ........................................................29 J. Proper Respondent ..............................................................................30 K. Reorganization of the Immigration and Naturalization Service .........31 L. Reorganization of Administrative Regulations ...................................31 M. Exclusion Orders .................................................................................31 IV. LIMITATIONS ON JUDICIAL REVIEW OF DISCRETIONARY DECISIONS ..................................................................................................32 A. Definition of Discretionary Decision ..................................................33 B. Enumerated Discretionary Decisions ..................................................34 1. Subsection (i) – Permanent Rules .............................................34 2. Transitional Rules .....................................................................34 3. Cases Addressing Jurisdiction over Certain Enumerated Discretionary Decisions ............................................................35 a. Cancellation of Removal/Suspension of Deportation .....35 b. Adjustment of Status ........................................................37 c. Voluntary Departure ........................................................38 C. Judicial Review Remains Over Non-Discretionary Determinations ..38 D. Jurisdictional Bar Limited to Statutory Discretionary Eligibility Requirements .......................................................................................40 E. Jurisdiction Over Constitutional Issues and Questions of Law ..........40 F. Authorized and Specified Discretionary Decisions–Subsection (ii) ...41 1. Particularly Serious Crime Determinations ..............................43 G. Asylum Relief ......................................................................................45 1. Eligibility Restrictions Generally Not Subject to Review ........45 a. One-Year Bar ...................................................................45 b. Previous-Denial Bar .........................................................47 c. Safe Third Country Bar ....................................................47 d. Terrorist Activity Bar .......................................................48 2. Standard of Review ...................................................................48 February 2021 A-ii V. LIMITATIONS ON JUDICIAL REVIEW BASED ON CRIMINAL OFFENSES ....................................................................................................49 A. Judicial Review Framework Before Enactment of the REAL ID Act of 2005 .....................................................................................................50 B. The Current Judicial Review Scheme under the REAL ID Act of 2005 .............................................................................................................53 1. Expanded Jurisdiction on Direct Review ..................................53 2. Applicability to Former Transitional Rules Cases ....................57 3. Contraction of Habeas Jurisdiction ...........................................58 VI. EXCLUSIVE JURISDICTION PROVISION – 8 U.S.C. § 1252(g) ............59 VII. JURISDICTION OVER CERTAIN MOTIONS...........................................61 A. Motions to Reopen and Motions to Reconsider ..................................61 B. Motions for Continuance .....................................................................65 VIII. JURISDICTION OVER OTHER PROCEEDINGS .....................................66 A. Expedited Removal Proceedings .........................................................66 B. Legalization Denials ............................................................................68 C. Registry................................................................................................69 D. In Absentia Removal Orders ...............................................................70 E. Reinstated Removal Proceedings ........................................................70 F. Discretionary Waivers .........................................................................75 1. Three and Ten-Year Unlawful Presence Bars ..........................75 2. Document Fraud Waiver ...........................................................75 3. Criminal Inadmissibility Waivers .............................................76 4. Fraud Waivers ...........................................................................76 G. Inadmissibility on Medical Grounds ...................................................77 H. Administrative Closure .......................................................................77 I. BIA Rejection of Untimely Brief ........................................................78 J. Denial of Registry ...............................................................................78 K. Appeal by Certification .......................................................................79 L. Administrative Removal .....................................................................79 February 2021 A-iii IX. SCOPE AND STANDARD OF REVIEW....................................................80 A. Scope of Review ..................................................................................80 1. Where BIA Conducts De Novo Review ...................................80 2. Where BIA Conducts Abuse of Discretion Review .................83 3. Where BIA Incorporates IJ’s Decision .....................................83 4. Burbano Adoption and Affirmance ..........................................83 5. Where BIA’s Standard of Review is Unclear ...........................85 6. Single Board Member Review ..................................................85 7. Streamlined Cases .....................................................................86 a. Jurisdiction Over Regulatory or “As-Applied” Challenges to Streamlining................................................................88 b. Streamlining and Multiple Grounds ................................89 c. Novel Legal Issues ...........................................................89 d. Streamlining and Motions to Reopen ..............................90 8. Review Limited to BIA’s Reasoning ........................................90 9. Review Generally Limited to Administrative Record ..............91 10. Judicial and Administrative Notice ...........................................91 11. No Additional Evidence ............................................................92 12. Waiver .......................................................................................92 a. Exceptions to Waiver .......................................................93 (i) No Prejudice to Opposing Party ...........................93 (ii) Manifest Injustice .................................................93 13. Agency Bound by Scope of 9th Circuit’s Remand ...................93 a. Scope of BIA’s Remand ..................................................94 14. Where
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