CHAPTER 1 BRIEF HISTORY OF IMMIGRATION LAWS

I. First 100 Years: 1776–1875 L. Adjustment of Status Provisions of State De- A. Open Door Policy ...... 3 partment Authorization Act ...... 7 B. Naturalization Act of 1790 ...... 3 M. Violent Crime Control and Law Enforcement C. Alien and Sedition Acts of 1798 ...... 3 Act of 1994 ...... 7 D. Steerage Act of 1819 ...... 3 N. Immigration and Nationality Technical Cor- E. Act to Encourage Immigration of 1864 ...... 3 rections Act of 1994 ...... 8 II. First Immigration Restrictions: 1875–1917 VII. 1996–2000 A. Act of March 3, 1875 (Page Act) ...... 3 A. Anti-Terrorism and Effective Death Penalty Act of 1996 (AEDPA) ...... 8 B. of 1882 ...... 3 B. Personal Responsibility and Work C. ...... 3 Opportunity Reconciliation Act of 1996 ...... 8 D. Alien Contract Labor Laws of 1885 and 1888 ...... 3 C. Illegal Immigration Reform and Immigrant E. ...... 3 Responsibility Act of 1996 (IIRIRA) ...... 8 F. 1903 Amendments ...... 3 D. Extension of Stay in the for G. Immigration Act of 1907 ...... 4 Nurses Act ...... 10 H. Gentleman’s Agreement with Japan ...... 4 E. Nicaraguan Adjustment and Central American III. First Quota Systems: 1917–1951 Relief Act (NACARA) ...... 10 A. Asiatic Barred Zone Act F. INA §§245(i), 245(k) Legislation ...... 11 () ...... 4 G. No Visas for Certain Haitian Nationals ...... 11 B. Alien Enemies Act of 1918 ...... 4 H. FY 1999 Omnibus Consolidated and Emer- C. Passport Act of 1918 ...... 4 gency Supplemental Appropriations Act ...... 11 D. Quota Act of 1921 ...... 4 I. International Religious Freedom Act of 1998 ...... 11 E. National Origin Quota Act J. Irish Peace Process Cultural and Training () ...... 4 Program Act of 1998 ...... 11 K. Nursing Relief for Disadvantaged Areas Act IV. 1952–1964 of 1999 ...... 12 A. McCarran Walter Act L. Amendment to Definition of Adopted Child ...... 12 (Immigration and Nationality Act of 1952) ...... 4 M. Intercountry Adoption Act ...... 12 N. American Competitiveness in the 21st Cen- V. 1965–1985 tury Act (AC21) ...... 12 A. Immigration and Nationality Act of 1965 ...... 5 O. Syrian Adjustment Act ...... 13 B. 1976 Amendments ...... 5 P. Victims of Trafficking and Violence Protec- C. 1978 Amendments ...... 5 tion Act of 2000 ...... 13 D. of 1980 ...... 5 Q. Child Citizenship Act of 2000 ...... 13 E. 1981 Amendments ...... 5 R. International Patient Act of 2000 ...... 14 VI. 1986–1995 S. Vietnamese, Cambodian & A. Immigration Reform and Control Act of 1986 Laotian Adjustment ...... 14 (IRCA) ...... 5 T. Disability Waiver for Persons Seeking Natu- B. Immigration Marriage Fraud Amendments ralization ...... 14 Act of 1986 (IMFA) ...... 5 U. Legal Immigration Family Equity Act (LIFE); C. Anti-Drug Abuse Act of 1986 ...... 6 LIFE Act Amendments ...... 14 D. Omnibus Anti-Drug Abuse Act of 1988 ...... 6 VIII. 9/11 Era and Its Aftermath: 2001–2008 E. Immigration Nursing Relief Act of 1989 (INRA) ..... 6 A. USA PATRIOT Act...... 14 F. (IMMACT90) ...... 6 B. Work Authorization for Spouses of Treaty G. Armed Forces Immigration Adj. Act of 1991 ...... 7 Traders & Treaty Investors ...... 15 H. Miscellaneous and Technical Immigration C. Work Authorization for Spouses of Intra- and Naturalization Amendments of 1991 ...... 7 company Transferees ...... 15 I. Torture Victim Protection Act of 1991 ...... 7 D. Family Sponsor Immigration Act of 2002 ...... 15 J. Chinese Student Protection Act of 1992 ...... 7 E. Enhanced Border Security and Visa Entry Re- K. Soviet Scientists Immigration Act of 1992 ...... 7 form Act of 2002 ...... 15 1 2 [Table of Contents, Chapter 1] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

F. Child Status Protection Act (CSPA) ...... 16 IX. 111th – 112th Congress: 2009–2012 G. Foreign Relations Auth. Act, FY 2003 ...... 16 A. Employ American Workers Act ...... 28 H. 21st Century DOJ Appropriations Authoriza- B. Afghan Allies Protection Act of 2009 ...... 28 tion Act ...... 16 C. DHS Appropriations Act for FY 2010 ...... 28 I. The Border Commuter Student Act of 2002 ...... 16 D. Human Rights Enforcement Act 2009 ...... 29 J. Homeland Security Act of 2002 ...... 16 E. Travel Promotion Act of 2009 ...... 29 K. Homeland Security Act of 2002 Amendments F. Patient Protection and Affordable Care Act Act ...... 17 (ACA) ...... 29 L. National Defense Authorization Act for FY G. Emergency Supplemental Appropriations for 2004 (Naturalization and Other Immigration Border Security ...... 29 Benefits for Military Personnel and Families) .... 17 H. International Adoption Simplification Act ...... 29 M. Torture Victims Relief Reauth. Act of 2003 ...... 18 I. Help HAITI Act of 2010; Help Haitian Adopt- N. Trafficking Victims Protection ees Immediately to Integrate Act of 2010 ...... 29 Reauthorization Act of 2003 ...... 18 J. Accreditation of English Language Training O. Consolidated Appropriations Act, 2004 ...... 18 Programs Act ...... 30 P. L-1 Visa and H-1B Visa Reform Act of 2004 K. Easing Service Members’ Ability to Remove (Omnibus Appropriations Act for FY 2005) ...... 18 Conditional Residency ...... 30 Q. Intelligence Reform and Terrorism L. Extending Several USCIS Programs ...... 30 Prevention Act of 2004 ...... 19 M. Intercountry Adoption Universal Accredita- R. REAL ID Act of 2005 ...... 20 tion Act of 2012 ...... 30 S. Violence Against Women Reauthorization Act of 2005 ...... 22 X. 113th – 114th Congress: 2013–2016 T. National Defense Auth. Act for FY 2006 ...... 23 A. Violence Against Women Reauthorization U. Adam Walsh Child Protection & Act of 2013 ...... 30 Safety Act of 2006 ...... 24 B. Extending Iraqi Special Immigrant Status Pro- V. Military Commissions Act of 2006 ...... 24 gram ...... 31 W. ...... 24 C. Iraqi and Afghan Extension and Improvement X. COMPETE Act of 2006 ...... 24 of the Special Immigrant Visa Program ...... 31 Y. Consolidated Appropriations Act of 2008 ...... 25 D. Accuracy for Adoptees Act ...... 31 Z. National Defense Authorization Act for FY E. Changing the Definition of Orphan in Non– 2008 (NDAA) ...... 25 Hague Convention Adoptions ...... 31 AA. Consolidated Natural Resources Act of F. Visa Limitation for Certain Representatives of 2008 (CNRA) ...... 26 the United Nations ...... 31 BB. Heroes Earnings Assistance & Relief Tax G. Adoptive Family Relief Act ...... 31 Act of 2008 ...... 26 H. 2016 Consolidated Appropriations Act ...... 31 CC. Tom Lantos and Henry Hyde U.S. Global I. Int’l Megan’s Law to Prevent Child Exploitation Leadership Against HIV/AIDS, Tuberculosis, & Other Sexual Crimes Through Advanced No- and Malaria Reauthorization Act of 2008 ...... 26 tification of Traveling Sex Offenders ...... 33 DD. Child Soldiers Accountability Act of 2008 ...... 27 J. Northern Border Security Review Act ...... 33 EE. Extending the Conrad 30 Program Exception ... 27 FF. Military Personnel Citizenship Processing XI. 115th Congress: 2017 – 2018 Act ...... 27 A. Northern Mariana Islands Economic GG. William Wilberforce Trafficking Victims Expansion Act ...... 33 Protection Reauth. Act of 2008 (TVPRA) ...... 27 B. Consolidated Appropriations Act, 2018 ...... 33

CHAPTER 2 FEDERAL AND STATE AUTHORITY TO REGULATE IMMIGRATION AND THE RIGHTS OF ALIENS

I. The Sources of Federal D. Relief from Removal: A Matter of Grace or a Power Over Immigration Matter of Right?...... 48 A. Enumerated Constitutional Powers ...... 37 1. The Commerce Clause ...... 37 III. State Efforts to Address the Rights of Aliens 2. The Naturalization Clause ...... 37 A. In General ...... 49 3. The Migration and Importation Clause ...... 37 B. Preemption Issues ...... 49 4. The War Power ...... 37 C. Key Provisions of State Laws Being Challenged .... 51 B. Implied Constitutional Powers ...... 37 1. Alabama HB 56 ...... 51 1. As an Incident of Sovereignty ...... 37 2. Arizona ...... 51 2. As an Incident of Foreign Policy ...... 38 a. SB 1070 ...... 51 3. Conflict Between Congress and the b. Ariz. Proposition 100 ...... 52 Executive ...... 38 c. Motor Vehicle Div. Policy under Ariz. Rev. Stat. §28-3153(D) ...... 52 II. The Limitation of Federal Power d. Identity theft & aggravated identity theft through the Assertion of Aliens’ Rights under Ariz. Rev. Stat. §§13-2008(A) and A. Standard of Review; Levels of Scrutiny ...... 38 12-2009(A)(3) relating to employment of 1. Strict Scrutiny ...... 38 unauthorized aliens ...... 52 2. Intermediate Scrutiny ...... 38 e. Human smuggling under Ariz. Rev. Stat. 3. Rational Basis Test ...... 39 §13-2319 ...... 52 4. Relief When Statute or Act Violates Equal 3. Colorado human smuggling statute Colo. Protection Does Not Automatically Extend Rev. Stat. §18-13-128 ...... 53 the Benefit ...... 39 4. Georgia (HB 87) ...... 53 B. Who Has Acted? ...... 39 5. Indiana Senate Enrolled Act (SEA) 590...... 53 1. The Legislative Branch ...... 39 6. Kansas Identity Theft Statute, Kans. Stat. 2. The Executive Branch ...... 40 Ann. §21-6807 ...... 53 3. Lower Level Government Officials...... 41 7. Montana (Leg. Referendum 121 ...... 53 4. State Actors ...... 41 8. Nebraska (City of Freemont Ord. 5165) ...... 53 C. What Is the Issue? ...... 42 9. Pennsylvania (City of Hazleton 1. Distinction Based on Race or National Ordinances 2006-13, -18, -40, and 2007-6) ... 53 Origin ...... 42 10. South Carolina (SB 20/Act 69) ...... 53 2. Distinction Based on Alienage ...... 42 11. Texas ...... 54 3. Distinction Based on Physical Location ...... 42 a. City of Farmers Branch, Ordinance 2952 ..... 54 4. Distinctions Among Aliens in Immigration b. House Bill 11, §14 ...... 54 Matters ...... 43 c. Senate Bill 4 (May 7, 2017)...... 54 a. Generally ...... 43 12. Utah ...... 54 b. Fundamental or Substantial Right a. HB 497 ...... 54 Implicated ...... 44 b. SB 35 ...... 55 c. Race or National Origin ...... 45 D. Political Sovereignty...... 55 d. Gender ...... 45 E. Sanctuary Cities Litigation ...... 56 e. Inadmissible vs. Deportable ...... 45

35

CHAPTER 3 ADMISSION AND REMOVAL

I. Lawful Admission as the Defining Concept b. Affidavit of Support (I‑864) ...... 89 A. Lawful Admission, Not Entry, is the Defining (1) Effective Date for I‑864 ...... 89 Concept ...... 69 (2) The I‑864 Sponsor...... 89 B. Parole Is Not an Admission ...... 70 (3) I‑864 Inapplicable to Certain Cases ...... 89 C. Termination of Parole ...... 70 (4) Household Wage-Earners (I‑864A), Joint Sponsors, Substitute Sponsors ..... 90 D. Parole-in-Place ...... 70 (5) Domicile Requirement ...... 91 E. Parole for Entrepreneurs ...... 71 (6) Income Requirements ...... 92 1. In General ...... 71 (7) Death of the Sponsor ...... 93 2. Requirements for Initial Parole ...... 72 (8) Forms I‑864, I‑864EZ, I‑864W, I‑134 ..... 93 3. Requirements for Re-Parole ...... 73 (9) Procedure ...... 93 4. Procedures ...... 73 (10) Documentary Requirements ...... 94 5. Spouse and Children ...... 74 (11) Affidavit as Enforceable Contract ...... 94 6. NIVs; Unauthorized Employment; (12) Criminal Issues ...... 97 Not Valid Status ...... 74 2. Persons Seeking Entry for Purpose of 7. Conditions of Parole ...... 74 Performing Skilled or Unskilled Labor ...... 97 8. Termination of Parole ...... 74 3. Certain Medical Graduates of 9. Increase in Revenue and Investment Nonapproved Schools ...... 98 Amount Requirements ...... 75 4. Uncertified Foreign Health Care Workers ..... 98 F. Applicants for Admission ...... 75 a. In General ...... 98 G. No Departure Means No New Admission...... 75 b. Persons Not Included in Statute ...... 99 H. The Constitutional Question ...... 76 c. Procedures ...... 99 I. Territorial Waters and Admission ...... 76 (1) In General ...... 99 J. Admission and Adjustment of Status ...... 76 (2) Nurses ...... 99 K. Admission Flexibly Applied in Other Contexts ...... 77 (3) Occupational Therapists ...... 100 (4) Physical Therapists ...... 100 II. Admission and Lawful Permanent Residents (5) Speech-Language Pathologists/Audiol- A. Traditional Fleuti Doctrine ...... 78 ogists, Medical Technologists (Clinical B. New Definition of Admission for LPRs ...... 78 Lab Scientists), Physicians Assistants ... 100 C. Continuing Validity of Fleuti? ...... 79 (6) Medical Technicians (Clinical Lab D. No Retroactive Application of §101(a)(13)(C) ...... 79 Technicians) ...... 100 5. Former Citizens Who Renounce E. Application of Fleuti to Non-LPRs ...... 79 Citizenship for Tax Purposes ...... 100 F. Burden of Proof ...... 80 6. Grounds of Exclusion Eliminated ...... 100 G. LPR Return Without Proper Documents ...... 80 C. Criminal Grounds ...... 101 H. LPR Cannot Be Charged as Arriving Alien 1. Crimes Involving Moral Turpitude (CIMT) . 101 Solely Because of Claim He Obtained His a. Generally ...... 101 LPR Status Unlawfully ...... 80 b. Determining a CIMT ...... 101 III. Grounds of Inadmissibility (1) Conviction vs. Admission ...... 101 A. Health-Related Grounds ...... 81 (2) Juvenile Crimes ...... 101 1. Class A and Class B Conditions ...... 81 (3) Petty Offense ...... 102 2. Communicable Disease of Public Health (4) Political Offenses ...... 103 Significance ...... 81 (5) Defining a CIMT ...... 103 3. Vaccinations ...... 83 (6) Inherent Nature of Crime ...... 104 4. Physical or Mental Disorder ...... 85 (7) Necessarily Turpitudinous ...... 104 5. Drug Abusers or Addicts ...... 86 (8) Analysis Under Categorical and Modified Categorical Approaches ..... 105 6. Guardian Accompanying Helpless Alien ...... 87 (9) Mental State Needed for CIMT ...... 109 7. Appeal ...... 88 (10) Legally Coherent Statute ...... 111 8. Burden of Proof ...... 88 (11) Conspiracy to Commit a CIMT ...... 111 9. IMMACT90 ...... 88 (12) Burden of Proof ...... 111 B. Economic Grounds ...... 88 (13) Foreign Conviction ...... 112 1. Persons Likely to Become a Public Charge .... 88 (14) De Novo Review ...... 113 a. Totality of the Circumstances ...... 88 (15) Presenting Docs to Consular Officers .... 113

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III. Grounds of Inadmissibility, cont’d 11. “Other Documentation” and “Other Benefit” .. 163 C. Criminal Grounds, cont’d 12. Burden of Proof ...... 163 1. Crimes Involving Moral Turpitude, cont’d 13. Relation-Back Doctrine...... 164 14. SAW and Legalization Fraud ...... 164 c. Examples of CIMTs ...... 113 15. Consular Advisory Opinion ...... 164 (1) Crimes Against the Person ...... 113 16. INA §212(a)(6)(C)(i) in Lieu of §204(c) ..... 164 (2) Sexual Offenses ...... 118 17. Review Under Substantial Evidence Standard . 164 (3) Crimes Against Property ...... 120 18. Inspected and Admitted ...... 164 (4) Crimes Against Government ...... 123 19. Waiver ...... 164 (5) Crimes Involving Fraud ...... 126 G. Inadequate Documentation ...... 165 (6) Misprision of Felony ...... 126 H. Miscellaneous Grounds of Inadmissibility ...... 165 (7) Accessory After the Fact and Other 1. Aliens Ineligible for Citizenship, or Aliens Inchoate Crimes ...... 126 who Evaded the Draft ...... 165 (8) Violations of Regulatory Laws ...... 127 2. Falsely Claiming Citizenship ...... 166 (9) Drug Offenses ...... 127 3. Unlawful Voting ...... 169 (10) Weapons Offenses ...... 127 4. International Child Abduction...... 169 2. Drug Offenses ...... 127 5. Illiteracy ...... 172 3. Money Laundering ...... 133 4. Two or More Offenses ...... 133 I. Security and Related Grounds ...... 172 5. Prostitution ...... 134 1. Espionage, Sabotage, or Illegal Activity ...... 172 6. Significant Traffickers in Persons ...... 134 2. Terrorist Activity ...... 173 7. Diplomats or Others Granted Immunity ...... 134 a. In General ...... 174 b. Spouses/Children ...... 177 D. Inadmissibility on Moral Grounds ...... 135 c. “Terrorist activity” ...... 177 1. Polygamy ...... 135 d. “Engaged in terrorist activity” ...... 178 2. Immoral Sex Acts ...... 135 e. Terrorist Organization Defined ...... 186 E. Violation of INA Laws Regarding Entry or f. Designation of FTOs ...... 186 Documentation ...... 135 g. Membership in a Terrorist Organization .... 187 1. Certain Aliens Previously Removed ...... 135 h. Know or Reason to Know ...... 188 2. Persons Unlawfully Present in the U.S...... 137 i. Waiver under INA §212(d)(3)(B)(i) ...... 188 a. Three-Year Bar ...... 137 j. Retroactive Application ...... 193 b. Ten-Year Bar ...... 137 k. Terrorist Screening Ctr.; TTIC Database .... 193 c. Counting the 6 Months and One Year; ...... 138 3. Association with Terrorist Organizations ..... 194 d. Counting the 3/10 Years ...... 138 4. Foreign Policy Grounds ...... 194 e. Unlawful Presence Defined ...... 138 5. Membership in Totalitarian Party ...... 194 f. Exceptions ...... 142 6. Nazis, Genocide, Torture ...... 195 (1) Minors ...... 142 7. Violators of Religious Freedom ...... 195 (2) Bona Fide Asylum Applicants ...... 142 8. Recruitment of Child Soldiers ...... 196 (3) Family Unity ...... 143 9. Cuban Liberty & Democratic Solidarity Act ... 196 (4) Battered Women and Children ...... 143 10. Confiscators of American Property ...... 196 (5) Victims of Trafficking ...... 143 11. Persons Who Disclose Confidential (6) U Status ...... 143 Business Information ...... 196 (7) Burden of Proof ...... 143 12. Certain Haitian Nationals ...... 196 g. Tolling for Good Cause ...... 143 13. Iranian Citizens Studying Nuclear Science .. 197 h. Embassy Investigation ...... 144 14. Forced Abortion or Sterilization Policies ..... 197 i. Agency Reporting ...... 144 15. Aiders or Abettors to Colombian Insurgent j. INA §245(i) Eligibility ...... 144 and Paramilitary Groups ...... 197 k. Waivers ...... 145 16. Persons Engaged in Coerced Organ or 3. Persons Unlawfully Present Who Enter EWI .. 151 Bodily Tissue Transplantation ...... 197 4. Persons Present Without Admission or Parole . 153 17. Burmese Involved in Repression ...... 197 5. Failure to Attend Removal Proceeding ...... 154 18. Presidential Proclamations and EOs ...... 197 6. Stowaways ...... 154 a. In General ...... 197 7. Smugglers ...... 154 b. The Travel Bans by Executive Order ...... 198 8. Document Fraud ...... 156 19. Secretary of State Authority to Ban Entry .... 200 9. Student Visa Abuse ...... 156 20. AG Authority to Ban Entry ...... 200 F. Fraud and Material Misrepresentation ...... 156 J. Waivers of Inadmissibility ...... 201 1. In General ...... 156 1. U.N. Headquarters Agreement ...... 201 2. 90-Day “Rule”...... 157 2. INA §212(a) Waivers ...... 201 3. Parent’s Fraud Not Attributable to Child ..... 157 3. Cancellation of Removal for LPRs ...... 201 4. Employer’s Fraud Not Necessarily 4. Continuing Availability of §212(c) Waivers ... 201 Attributed to Beneficiary of Petition ...... 157 5. INA §209(c) ...... 201 5. Seeking Asylum As Indicator ...... 157 6. INA §212(d)(1) ...... 202 6. Fraud Indicators ...... 158 7. INA §212(d)(3)(A)...... 202 7. Misrepresentation ...... 158 8. INA §212(d)(4) ...... 204 8. Materiality ...... 158 9. INA §212(d)(11) ...... 204 9. Willfulness ...... 161 10. INA §212(d)(12) ...... 205 10. Intent to Deceive ...... 163

CHAPTER 3 • ADMISSION AND REMOVAL 61

11. INA §212(d)(13) ...... 205 c. Stowaways ...... 226 12. INA §212(d)(14) ...... 205 d. No Diplomatic Relations ...... 226 13. INA §212(e) ...... 205 e. CNMI ...... 226 14. INA §212(g) ...... 205 f. LPRs, Refugees/Asylees, USCs ...... 226 15. INA §212(h) ...... 205 g. Lawfully Admitted Persons ...... 226 a. 15-Year Statute of Limitations ...... 206 h. VWP ...... 226 b. Extreme Hardship Waiver ...... 206 i. Prosecutorial Discretion ...... 226 c. VAWA Self-Petitioners ...... 207 3. Due Process Protections ...... 226 d. Good Moral Character ...... 207 4. Detention and Parole ...... 227 e. Apparent Eligibility ...... 207 a. Overview ...... 227 f. Application to Marijuana Convictions...... 207 b. Right to Notice of 1-Year Asylum Deadline .. 228 g. Waiver Unavailable for Certain Aliens ...... 208 c. “Catch and Release” Policy ...... 228 h. Not Available to Certain LPRs ...... 208 5. Return to Contiguous Countries ...... 228 i. Not Available to Conditional Resident ...... 210 6. Bar to Cancellation ...... 228 j. Application to Exclusion, Deportation, 7. Administrative Review ...... 228 and Reopened Proceedings ...... 210 8. Judicial Review ...... 229 k. Convictions that Bar Non-LPR or Special 9. Stay of Removal ...... 229 Rule Cancellation ...... 211 E. Removal of Suspected Terrorists and Foreign l. Waiver Permanent ...... 211 Policy or Security Threats...... 230 m. Judicial Review ...... 211 F. Stowaways ...... 230 n. Waiver Filed on Form I‑601 ...... 211 G. Other Removal Where Admissibility is Chal- 16. INA §212(i) ...... 211 lenged at Border...... 230 a. Availability ...... 212 H. Waiver of Documentary Requirements ...... 230 b. Extreme Hardship Factors ...... 212 c. Favorable Exercise of Discretion ...... 213 I. Deferred Inspection ...... 230 d. Fraud Requiring Waiver Can Be Used as J. Parole ...... 231 Adverse Factor in Determining Case...... 213 K. Withdrawal of Application ...... 232 e. Waiver Unavailable ...... 214 L. Voluntary Return ...... 232 f. Waiver Submitted on Form I‑601 ...... 214 M. Detention of Inadmissible Persons; Bond ...... 233 g. Administrative and Judicial Review ...... 214 1. Overview ...... 233 17. INA §212(k) ...... 214 2. Inadmissible Arriving Aliens ...... 233 18. INA §213 ...... 214 3. Inadmissible Persons Who Aren’t Arriving K. Forms for Waiver ...... 215 Aliens & Who Aren’t Subject to Mandatory L. Consular Decision on Waiver ...... 215 Detention on Crim. Grounds or Terrorism ...... 234 M. Fee Waivers ...... 215 4. Inadmissible Persons Who Aren’t Arriving N. Right to Notice of Denial of Visa ...... 215 Aliens but Are Placed in . 236 O. Effective Date ...... 216 5. Persons Inadmissible on Criminal or Terrorism Grounds under §236(c) ...... 236 IV. Procedures Governing Inadmissibility 6. Challenge by Returning LPRs to A. Preliminary Procedures Upon Arrival in U.S...... 216 Mandatory or Nonmandatory Detention ...... 236 1. Alien Subject to Inspection at Border ...... 216 7. Mandatory Detention of Suspected Terrorists . 236 2. Money Laundering Watch List...... 217 8. Persons Subject to Expedited Removal ...... 237 3. Disclosure of Lookout Information ...... 217 9. Prolonged & Indefinite Detention of Inadmis- 4. Disclosure of ADIS and ENFORCE / sible Persons Pending Removal Proceedings .. 237 IDENT Records ...... 217 10. Indefinite Detention of Person Found 5. Challenging US-VISIT / OBIM Records ..... 218 Inadmissible Is Illegal ...... 237 6. Challenging ADIS Records ...... 218 11. ICE Parole ...... 237 7. Challenging ENFORCE / IDENT Records .. 218 12. Judicial Review of Detention Decisions ...... 239 8. DHS-TRIP: Challenging a Lookout and a. Abuse of Discretion ...... 239 Secure Flight Determination ...... 218 b. Facially Legitimate and Bona Fide ...... 239 9. Removing Information from CLASS ...... 219 c. Challenging ICE ...... 240 10. Representation ...... 219 13. Parole Revocation ...... 241 11. Medical Grounds ...... 220 14. Cuban Review Plan ...... 242 12. Public Charge ...... 220 15. Review Procedures for Non–Mariel Cuban B. Low-Risk Border Travelers ...... 220 and Other Indefinite Detainees ...... 242 1. Trusted Traveler/Global Entry Program ...... 220 16. Humanitarian Parole to USCIS or 2. Other Programs ...... 221 Significant Public Benefit Parole to ICE ..... 242 3. Automated Passport Control (APC) ...... 222 17. Humanitarian Parole Request by Consul...... 243 4. Electronic Visa Update System (EVUS) ...... 222 18. Release During Stay Order...... 243 C. Persons Subject to Inspection ...... 223 19. Detention and Release of Juveniles ...... 243 20. Persons in Vulnerable Categories ...... 243 D. Expedited Removal ...... 223 21. Employment While Detained ...... 243 1. Generally ...... 223 22. Force Feeding During Detention ...... 244 2. Exceptions ...... 224 23. Overseas Facilities (Guantanamo) ...... 244 a. Credible Fear of Persecution ...... 224 24. Release of Identity and Info re Detainees .... 244 b. Unaccompanied Minors ...... 226

62 [Table of Contents, Chapter 3] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

IV. Procedures Governing Inadmissibility, cont’d 3. Foreign Policy ...... 262 M. Detention of Inadmissible Persons, cont’d 4. Nazi, Genocide, Torture ...... 263 5. Recipient of Military-Type Training ...... 263 25. Conditions of Confinement—ICE ...... 245 6. Severe Violation of Religious Freedom ...... 263 a. In General ...... 245 7. Recruitment of Child Soldiers ...... 264 b. Pregnant Detainees ...... 246 E. Failure to Register; Falsification of Documents .... 264 c. Transgender Detainees ...... 246 1. Change of Address ...... 264 d. Detainee Treatment Act of 2005...... 246 2. Failure to Register; Falsification of Docs..... 264 e. Segregation or Solitary Confinement ...... 246 3. Document Fraud ...... 264 f. Telephone Access in Detention ...... 247 4. False Claim to Citizenship ...... 264 g. Visitation by Legal Counsel ...... 247 F. Unlawful Voting ...... 265 h. Access for Mental Health Evaluations ...... 248 i. Biometrics in Detention ...... 248 G. Criminal Grounds, Generally ...... 265 j. Employee Conduct ...... 248 1. Categorical Approach ...... 265 26. Conditions of Confinement—CBP ...... 248 2. Sentence and Term of Imprisonment ...... 265 27. Complaints ...... 249 3. Collateral Attack on Criminal Conviction.... 266 28. Sexual Abuse; Assault Prevention/Intervention . 250 4. Crimes of Moral Turpitude ...... 266 29. Filing Suit...... 250 a. Note re Categorical Approach ...... 266 30. Death of Persons in Detention ...... 250 b. Generally ...... 266 31. Escape from Detention ...... 250 c. Attempt Crimes ...... 268 N. Special Registration (NSEERS) ...... 250 d. Multiple CIMTs ...... 268 O. Removal Hearing for Those Seeking Admission .. 252 e. Juvenile Delinquency ...... 270 1. General ...... 252 f. Foreign Convictions ...... 270 2. Effective Date ...... 252 5. High-Speed Flight ...... 270 3. Prehearing Matters ...... 252 6. Drug-Related Offenses ...... 270 a. Notice to Appear (NTA) ...... 252 7. Firearms Violations ...... 273 b. Change of Venue ...... 252 8. Sex Traffickers ...... 276 c. Right to Counsel ...... 252 9. Miscellaneous Crimes ...... 276 4. Removal Hearing for Inadmissible Persons ..... 253 10. Domestic Violence, Stalking, Protective a. Right to Fundamentally Fair Hearing ...... 253 Order Violations, and Child Abuse ...... 276 b. Continuances ...... 253 11. Sex Offender Who Fails to Register ...... 280 c. Burden of Proof ...... 253 12. Prostitution Eliminated ...... 280 d. In Absentia Removal ...... 255 H. Aggravated Felonies ...... 280 e. Translations ...... 256 1. Murder, rape, or sexual abuse of a minor ..... 281 5. Relief for Persons Deemed Inadmissible ..... 256 2. Trafficking in controlled substance ...... 284 a. Admission ...... 256 3. Trafficking in Firearms, Destructive Devices .. 293 b. Asylum, Withholding, or CAT ...... 256 4. Laundering of Monetary Instruments ...... 293 c. Adjustment of Status ...... 256 5. Explosives, Firearms, Arson ...... 293 d. Unconditional Withdrawal of Application ..... 256 6. Crimes of Violence (COVs) ...... 294 e. Voluntary Departure ...... 256 7. Theft, Burglary, Receipt of Stolen Property .... 305 f. Permission to Reapply Nunc Pro Tunc ...... 256 8. Ransom Offenses ...... 309 g. Prosecutorial Discretion ...... 256 9. Child Pornography Offenses ...... 309 6. Summary Decision ...... 256 10. RICO offenses...... 309 7. Consequences of Removal for Inadmissibility .. 257 11. Prostitution and Slavery Offenses ...... 309 a. Adjustment ...... 257 12. National Defense Offenses ...... 310 b. SAW Program ...... 258 13. Fraud/Deceit; Tax Evasion ...... 310 8. Physical Removal ...... 258 14. Alien Smuggling Offenses ...... 314 9. Stay of Removal ...... 258 15. Offense Described in §§275(a) or 276 ...... 315 10. Appeals; Motions to Reopen ...... 258 16. Falsely Making, Forging, Counterfeiting, Muti- V. Deportation Grounds lating, or Altering Passport or Instrument ...... 315 A. Inadmissible at Time of Entry or AOS ...... 258 17. Failure to Appear for Service of Sentence ..... 315 B. Other Status Violations ...... 259 18. Commercial Bribery, Counterfeiting, 1. Present in U.S. in Violation of INA or Any Forgery, Trafficking...... 315 Other U.S. Law, or with Revoked NIV ...... 259 19. Obstruction of Justice, Perjury, Subornation 2. Failure to Maintain Nonimmigrant Status .... 259 of Perjury, Bribery...... 316 3. Termination of Cond’l Perm. Residence ...... 261 20. Failure to Appear Pursuant to Court Order .... 317 4. Encouraged, Induced, Assisted, Abetted, 21. Attempt to Commit any of Above ...... 317 or Aided Any Other Alien to Enter U.S...... 261 22. Conspiracy to Commit Any of Above ...... 318 5. Marriage Fraud ...... 261 23. Aiding & Abetting; Accessory After the Fact .. 319 C. Economic Reasons ...... 261 I. Other Aggravated Felony Issues ...... 320 1. Public Charge ...... 261 1. Federal and State Law Apply ...... 320 2. Institutionalized Persons ...... 262 2. State Offenses as Aggravated Felonies ...... 320 D. Security and Political-Related Grounds ...... 262 3. “Described In” Language in Agg. Fel. Statutes . 321 1. In General ...... 262 4. “Relating To” Language ...... 321 2. Terrorist Activities ...... 262 5. “Involves” Language ...... 323

CHAPTER 3 • ADMISSION AND REMOVAL 63

6. “Including” Language in Agg. Fel. Statutes .... 323 D. Writ of Error Coram Nobis ...... 370 7. Ordinary Meaning of “Aggravated Felony” .... 323 E. Writ of Audita Querela ...... 371 8. Foreign Convictions ...... 323 F. All Writs Act ...... 371 9. Categorical, Modified Categorical Approaches 324 G. Habeas Corpus to Vacate or Set Aside Con- a. Categorical Approach ...... 324 viction; State Counterparts...... 371 (1) Overview ...... 324 H. Motion to Withdraw Plea...... 372 (2) Nondivisible Statutes ...... 325 I. Motion to Correct or Reduce Sentence ...... 372 (3) Divisible Statutes ...... 326 (4) Time to Determine Approach ...... 326 J. Other Forms of Relief ...... 372 (5) Ordinary Case Approach ...... 327 (6) Elements vs. Means ...... 327 VIII. Criminal Matters Related to Removal (7) Definitional Elements ...... 329 A. Requirements Concerning Probation ...... 373 (8) Hypothetical Ambiguity ...... 330 B. Victims of Immigr. Crime Engagement (VOICE) .. 374 b. Waiver of Divisibility Analysis?...... 332 c. Modified Categorical Approach ...... 332 C. Conviction for Reentry or Being Found in d. The Shepard Documents ...... 334 U.S. After Deportation ...... 374 e. The Nijhawan Exception to Shepard ...... 335 1. Reentry ...... 374 f. Analysis Under BIA Categorical Approach ... 337 a. In General ...... 374 g. Documents to Prove Conviction ...... 338 b. Elements of the Crime of Reentry ...... 375 h. Burden of Proof ...... 341 c. Attempt ...... 377 i. Beyond a Reasonable Doubt Standard ...... 342 d. Statutory Language Requires DHS’s 10. Differences in Categorical Approach Permission Before Re-entering ...... 377 Between CIMTs & Aggravated Felonies ..... 342 e. Reentry May Extend Beyond 12-Mile Limit .. 378 11. Definition of Term of Imprisonment ...... 342 f. Constitutionality of §1326 d ...... 378 12. Effective Date ...... 344 g. Failure to Establish Entry and Existence of Official Restraint as a Defense ...... 378 J. Effective Date / Savings Provision ...... 347 h. Justification as a Defense ...... 379 VI. Conviction Under the INA i. Duress as a Defense ...... 379 A. Definition ...... 349 j. Consent as Defense ...... 379 1. Generally ...... 349 k. Double Jeopardy as Defense ...... 379 2. Previous Definition Removed ...... 349 l. Citizenship as a Defense ...... 379 3. BIA Definition: Roldan and Its Progeny ...... 349 m. Lacking Mens Rea as a Defense ...... 380 4. BIA Interpretation Generally Upheld ...... 350 n. Suppression of Evidence ...... 380 5. Punishment under Definition of Conviction .... 351 2. “Found In” ...... 380 6. Municipal/City Ordinance Violations ...... 351 a. In General ...... 380 7. Courts-Martial ...... 351 b. Venue as a Defense ...... 382 8. Conviction of USC Under Adam Walsh Act ... 352 c. Defense that Person Was Under Official 9. Judgments of Guilt ...... 352 Restraint Prior to Entry ...... 382 10. Pretrial Interventions ...... 352 d. Citizenship Defense ...... 382 11. Vacated Convictions ...... 352 e. Insanity/Duress Defense ...... 383 12. Vacating a Sentence ...... 355 f. Suppression of Evidence ...... 383 13. Juvenile Proceedings ...... 355 g. Void for Vagueness ...... 383 14. State Determination of Whether Predicate 3. Statute of Limitations Defense ...... 383 Crime is a Conviction ...... 355 4. Double Jeopardy ...... 384 15. Conviction Not Reviewed ...... 355 5. Necessity Defense ...... 384 16. Enhancement of Sentence as a Conviction ... 356 6. Entrapment by Estoppel ...... 384 17. Reason to Believe, Even if Conv. Vacated ... 356 7. Defense that Person Was Involuntarily in U.S. .. 384 B. Finality of Conviction/Appeals ...... 356 8. Miranda Warnings ...... 384 9. Arrest Improper as Defense ...... 385 C. Guilty Pleas ...... 358 10. Person Not Deported ...... 385 1. Plea and Restraint Is a Conviction ...... 358 11. Collateral Attack on Deportation Order ...... 385 2. Judge Must Advise of Imm. Consequences ...... 358 a. In General ...... 385 3. Counsel Must Advise of Imm. Consequences .. 359 b. General Criteria ...... 386 4. Alford Plea ...... 362 c. Exhaustion of Administrative Remedies .... 386 5. Not an Admission as to Specifics ...... 363 d. Denial of Judicial Review ...... 387 6. Nolo Plea Combined with Punishment ...... 363 e. Fundamentally Unfair Proceeding Where 7. Elements of Offense ...... 363 Defendant Was Prejudiced ...... 388 8. Fast Track Pleas ...... 363 f. Relief Granted ...... 391 9. Effect of Withdrawn Plea ...... 364 g. Relief Denied ...... 393 D. Foreign Convictions ...... 364 h. Standard of Review ...... 395 E. Misprision; Solicitation; Accessory ...... 364 i. Right to Evidentiary Hearing ...... 395 VII. Relief from Convictions j. Defenses ...... 395 k. Can Attack Underlying Conviction ...... 395 A. Judicial Recommendations Against Deportation .. 366 l. Mootness ...... 395 B. Expungement of Conviction ...... 367 m. Discovery ...... 395 C. Pardons ...... 370

64 [Table of Contents, Chapter 3] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

VIII. Criminal Matters Related to Removal, cont’d 3. Departure of Witnesses ...... 415 4. Juvenile Aliens ...... 416 D. Conviction for Bringing In, Harboring, Trans- 5. Criminal Forfeitures ...... 416 porting, or Encouraging ...... 396 6. Reporting Criminal Conduct ...... 416 1. In General ...... 396 7. Sentencing ...... 416 2. Bringing Into or Attempt to Bring Into U.S. .... 396 a. Generally ...... 416 3. Bringing to the United States ...... 397 b. Sentencing Cases in Supreme Court 4. Transporting ...... 398 Defining Post-Booker Sentencing ...... 418 5. Harboring; Concealing; Shielding from d. Cases Interpreting Reentry Guidelines ...... 423 Detection ...... 400 e. Sentencing Cases Post-Booker ...... 428 6. Encouraging ...... 401 f. Adjustments of Sentence ...... 429 7. Conspiracy or Aiding/Abetting Commission g. Stipulation to Deportation as Basis for of Any of Acts in INA §274(a)(1)(A)(v) ...... 401 Downward Departure ...... 431 8. Immediate Presentation ...... 402 h. Supervised Release ...... 431 9. Defenses ...... 402 i. Delay in Charging Defendant ...... 431 10. Forfeiture and Seizure ...... 402 j. Fines as Part of a Sentence ...... 432 E. Failure to Register ...... 405 8. Former Rule Against Judicial Deportation ... 432 F. Aiding/Assisting Inadmissible Persons to Enter ... 405 9. Current Statutes Allowing Judicial Deportation . 432 G. Marriage Fraud ...... 405 10. Extradition of Persons Who Are Not H. Fraudulent Documents for Entry; False Statements 406 Citizens, Nationals, or LPRs ...... 432 I. Establishing Commercial Enterprise to Com- 11. Prisoner Transfer Treaties ...... 432 mit Immigration Fraud ...... 408 12. Speedy Trial ...... 433 J. Identification Document Fraud ...... 408 IX. Fines K. Fraud and Related Activity re ID Documents ..... 408 A. In General ...... 433 L. Aggravated Identity Theft ...... 409 B. Procedures for All Fines Except INA §274 ...... 434 M. Use of a False Passport ...... 409 C. Civil Penalties for Document Fraud ...... 435 N. False Statement to Obtain U.S. Passport ...... 410 1. Generally ...... 435 O. Destruction of Official Documents ...... 410 2. “Falsely Made” ...... 436 P. False Statements ...... 410 3. Form I‑9 ...... 436 Q. Perjury ...... 410 4. Investigation ...... 436 R. Obstruction of Fed’l Agency Proceedings ...... 411 5. Hearing ...... 437 S. Failure to Disclose Role as Document Preparer .... 411 6. Penalties ...... 437 T. False Claim to U.S. Citizenship ...... 411 7. Defenses ...... 438 8. Administrative and Judicial Review ...... 438 U. Voting in Federal Election ...... 411 D. Civil Penalty for Failure to Depart ...... 438 V. Employer Sanctions ...... 411 W. Failure to Depart After Deportation Order or X. Removal Procedures Hampers Deportation ...... 411 A. Effect of Deportation ...... 439 X. Failure to Make Timely Application for Travel B. Due Process ...... 439 Documents ...... 411 1. Generally ...... 439 Y. Failure to Comply with Terms of Release Order .. 412 2. Cases Finding Due Process Violations ...... 439 Z. Amnesty and SAW Fraud ...... 412 3. Cases Finding No Due Process Violation .... 443 AA. Escape from Removal ...... 412 4. Relief from Removal: Matter of Grace or BB. EWI; Attempt to Enter ...... 412 Matter of Right? ...... 448 CC. High-Speed Flight from Immigr. Checkpoint .... 412 5. Deportation is Civil, Not Criminal, Proceeding . 449 DD. Failure to Maintain ...... 413 6. Statute of Limitations ...... 450 7. Failure of Agency to Follow Its Own Rules .... 450 EE. Aliens in Possession of a Firearm ...... 413 8. Equal Protection; Irrational Distinctions ...... 451 FF. Social Security Fraud ...... 414 C. USCIS Forms Have Force of Law ...... 453 GG. Withholding Documents to Further Traf- D. REAL ID Act Standard for Relief ...... 453 ficking in Persons ...... 414 E. De Facto Deportation of USC or LPR Chil- HH. International Marriage Brokers ...... 414 dren and Separating Families ...... 453 II. RICO Predicate Offenses ...... 414 F. Suppression of Illegally Obtained Evidence ...... 454 JJ. Forced Labor, Peonage, Document Servitude ...... 414 1. Basic Issues ...... 454 KK. Fraud in Foreign Labor Contracting ...... 414 2. Property Outside U.S...... 454 LL. Passport Confiscation or Destruction ...... 414 3. Removal Proceedings ...... 454 MM. Importation of an Alien for Prostitution or 4. Statutory Basis for Suppression ...... 456 Other Immoral Purposes ...... 415 5. Administrative Exclusionary Rule ...... 457 NN. Hostage Taking by Aliens of U.S. Nationals ..... 415 6. Suppression under BIA Exclusionary Rule ..... 457 OO. Border Tunnel Construction ...... 415 7. Suppression Possible under Fifth Amend...... 457 PP. Sex Offender Travel ...... 415 8. First Amendment ...... 458 QQ. Other Criminal-Related Issues ...... 415 9. State/Local Police ...... 458 1. Agreements with U.S. Att’y as Part of Plea ..... 415 10. Vienna Convention ...... 458 2. Deportation and Removal...... 415 11. Delay ...... 458

CHAPTER 3 • ADMISSION AND REMOVAL 65

12. Indirect Fruit ...... 458 6. Bond Procedure ...... 486 13. Improper Use of Administrative Warrant ..... 459 7. Asylum Applicants...... 488 14. Improper Use of Civil Proceeding to 8. Detention of Children and Families ...... 488 Obtain Criminal Indictment ...... 459 9. Appeals to BIA ...... 490 15. Suppression of the Alien File ...... 459 10. Federal Court Review of Detention 16. Suppression of Identity ...... 460 Pending Proceedings ...... 491 17. Suppression and Admission ...... 460 11. Cancellation of Bond ...... 494 18. Civil Tort Claims ...... 460 12. Breach of Bond ...... 494 G. Encounters/Interrogation ...... 460 O. Conditional Parole ...... 495 1. Initial Determination ...... 460 2. Stops ...... 461 P. Detainers ...... 495 3. Frisking ...... 465 1. Generally ...... 495 4. Seizures ...... 465 2. Cooperation of Law Enforcement Agencies .... 495 5. Interrogation Procedure ...... 466 3. LEA Liability ...... 496 6. Use of Force ...... 467 4. U.S. Liability ...... 496 H. Area Control Operations; Investigative 5. Detainer Form ...... 497 Searches; Worksite Enforcement Operations .... 468 6. Priorities Potentially Affecting Detainers .... 497 1. Broad Factory Sweeps ...... 468 7. Sanctuary Cities and Detainers ...... 498 2. Standing to Contest Search or Warrant ...... 468 8. Consequences for Inmates ...... 498 3. Challenging the Warrant ...... 469 9. Federal Jurisdiction to Challenge Detainer .. 498 4. Warrantless Searches and Seizures ...... 469 10. Controlled Substances Violations ...... 499 5. Border/Checkpoint Search and Seizure ...... 471 11. Time for Taking Person into Custody ...... 499 6. Dog Alerts ...... 473 12. Cancelling the Detainer ...... 500 7. Driver’s Licenses ...... 474 13. Court in Pretrial Proceeding Makes 8. Sting Operations ...... 474 Custody Determination, Not DHS ...... 500 9. Schools, Churches, and Funerals ...... 474 14. When Detainers May Be Issued ...... 500 10. Courthouses ...... 474 15. The Interstate Agreement on Detainers ...... 501 11. Affordable Care Act (Obamacare) Info ...... 475 16. Return of and End of I. Subpoenas ...... 475 Priority Enforcement Program ...... 501 J. Retention of Documents ...... 475 Q. Bail Reform Act ...... 502 K. Arrest ...... 476 R. Special Rules for Detention of Agg. Felons, Per- 1. In General ...... 476 sons Convicted of Certain Crimes, & Terrorists ... 502 2. Secondary Inspection ...... 476 3. Improper Arrests ...... 476 S. Mandatory Detention of Suspected Terrorists ... 511 4. Arrest Warrant...... 477 5. Arrest of Person Claiming USC Status ...... 477 T. Removal Hearings ...... 514 6. VAWA, T, or U Visa Arrests ...... 477 1. Initiation ...... 514 7. Detention Without Charge ...... 477 2. Prosecutorial Discretion ...... 515 8. State and Local Authority to Arrest...... 477 a. Prosecutorial Discretion Defined ...... 515 9. FBI Authority to Make Immigration Arrests ... 479 b. Factors to Consider ...... 516 10. Military Officers and Others Not c. OPLA Attorney Role ...... 517 Authorized to Arrest ...... 479 d. IJ’s Role ...... 518 e. Add’l Criteria Under Superseded Memo .... 518 L. Detention ...... 479 f. Employment Authorization ...... 519 1. Release on Bond ...... 479 g. Procedural Issues re Cases in Proceedings 2. Prosecutorial Discretion in Detention ...... 480 or Where NTA Not Yet Filed with EOIR ... 519 3. Prosecutor’s Responsibility upon Claim of h. Family Relationships Extended to Same- USC ...... 481 Sex Couples ...... 519 4. Release of Detainee with I‑130 or Other Pen- i. Prior Guidance ...... 519 ding Appl./Pet’n with Current Priority Date .... 481 j. Prohibited Considerations and Procedures ..... 519 5. Mandatory Detention for Agg. Felons, Other k. Victims and Witnesses of Crimes and Persons with Convictions, and Terrorists ...... 481 Plaintiffs in Civil Rights Suits ...... 520 6. Detention as Condition of VD ...... 481 l. Persons with U.S. Military Service ...... 520 7. Location of Detention ...... 481 m. Persons with Pending I‑130 or Other 8. Transfer of Detainees ...... 481 Petitions/Applications ...... 520 9. Conditions of Confinement ...... 482 n. Parents Where Children Are in U.S...... 521 10. DNA Sampling ...... 482 o. Guidelines re USCIS and Initiating 11. Strip Search and View of Detainees ...... 482 Referrals for NTAs ...... 521 M. Release of Identity and Info re Detainees ...... 483 p. Joint Motion to Dismiss for AOS ...... 521 q. Docketing by EOIR ...... 522 N. Bonds ...... 483 r. Decision to Seek Remand from Federal 1. Generally ...... 483 Court to BIA ...... 522 2. Maintenance of Status and Departure Bond . 483 s. Judicial Review ...... 522 3. Delivery Bond ...... 483 4. Public Charge Bond ...... 483 3. Issuance of NTAs ...... 522 5. Standards, Criteria, and Conditions of Bond .... 483

66 [Table of Contents, Chapter 3] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

X. Removal Procedures, cont’d (4) DHS Response Process; Expedited Pro- T. Removal Hearings, cont’d cessing under Settlement Agreement .....557 (5) Standing to Sue ...... 557 4. Challenges to NTA ...... 523 (6) Adequacy of Search ...... 557 a. After commencement of proceedings a (7) Venue/Exhaustion ...... 559 party may move for dismissal ...... 523 (8) USCIS and ICE Requests Are Separate . 559 b. Application for NTA [I-862] not based on (9) Referral to Other Agencies ...... 559 prima facie case of deportability ...... 523 (10) Exceptions to be Narrowly Construed ... 560 c. Selective Prosecution ...... 523 (11) Burden of Proof ...... 560 d. NTA Issuance Accompanied by Duress or (12) INA §222(f) and Other Statutes Lack of Due Process ...... 523 Exempting Disclosure ...... 564 e. Procedural Due Process Violated Due to (13) Asylum Officers’ Notes and Martins Lack of Notice of Correct Charges ...... 524 Settlement ...... 564 f. Res Judicata / Collateral Estoppel ...... 524 (14) Immigration Officers Interview g. Procedural Due Process Challenge...... 526 Notes in Marriage and Other Cases .... 564 h. Substantive Due Process Challenge ...... 526 (15) Denying Disclosure ...... 564 i. Where DHS Estopped ...... 526 (16) Granting Disclosure; Denying Gov- j. Claim to Citizenship ...... 529 ernment Summary Judgment ...... 567 k. Respondent Was Citizen at Time of Conviction (17) Glomar Response ...... 569 of Charges Forming Basis of Removal ...... 532 (18) In Camera Review...... 570 l. Insufficient Notice of Proceeding or Charge .. 532 (19) Exhaustion of Remedies ...... 570 m. Respondent Is Temporary Resident and (20) Standard of Review ...... 570 DHS Hasn’t Revoked Residency ...... 533 (21) Fugitive Disentitlement Doctrine ...... 570 n. Respondent Improperly Charged as (22) Attorney’s Fees ...... 570 Deportable When Inadmissible ...... 533 (23) Mediation ...... 570 o. NTA Improvidently Issued ...... 533 d. Subpoenas ...... 570 p. Respondent Charged with NSEERS Violation e. Depositions or Interrogatories ...... 571 Despite Insufficient Evidence of Willfulness ... 533 f. FBI Records Request ...... 571 q. DHS Agrees to Administratively Close Case and Recharge in Removal Proceedings so She g. Medical Records ...... 571 Can Get Benefit of Cancellation of Removal ... 533 h. Jencks Act ...... 571 r. NTA Not Issued by Proper Authorities ...... 534 i. Privacy Act ...... 571 s. Violation of §239(e) Certification Reqts .... 534 (1) Generally ...... 571 t. Statute Under Which DHS Seeks (2) Legal Actions under Privacy Act ...... 572 Deportation Is No Longer Effective ...... 534 (3) Exemption from Disclosure ...... 573 u. Arrest and Detention Arise out of Unfair (4) DHS Privacy Policies ...... 573 Labor Practice by Person’s Employer ...... 534 (5) PIA; Data Collection Programs ...... 573 v. Respondent Deceased or Not in U.S...... 534 (6) Exemptions from Privacy Act ...... 575 w. Where International Law Bars Removal ..... 534 (7) Counterterrorism Information ...... 576 x. Where Respondent Prima Facie Eligible (8) Processing Complaints Within DHS .. 576 for TPS or DED ...... 535 j. Right to Production of Favorable Evidence ... 576 y. Where Respondent Has Asylum Status ...... 535 k. Right to Production of Derogatory Evidence . 577 z. Where DHS Asked for Termination because l. Right to Production of Application Where It Respondent Was Previously Removed and Not Was Renewed in Removal Proceedings ...... 577 Entitled to Hearing to Determine Reinstate- m. Classified Information ...... 577 ment of Prior Order Under §241(a)(5) ...... 535 n. Access to Visa Records ...... 578 aa. Rule of Proportionality Violation ...... 535 o. Prehearing Conference; Pretrial Stipulations .. 578 bb. Federal Ct. Review of Motion to Terminate .. 536 p. Data Sharing Between EOIR and DHS ...... 578 5. Procedural Rights Before Hearing ...... 536 q. EOIR “I³” (“I-cubed”) ...... 578 a. Applicable Provisions ...... 536 r. Federal Records Act ...... 578 b. Service of OSC under Former Law ...... 538 7. Hearings ...... 578 c. Ten-Day Notice ...... 538 a. Generally ...... 578 d. Initiation of Proceedings in Particular b. Pleading Stage and Evidentiary Stage ...... 579 Location ...... 538 c. Procedural Issues at Hearing ...... 579 e. Filing Docs with Immigration Court ...... 538 d. Shackling of Respondents at Hearing ...... 579 f. Change of Venue ...... 538 e. Closed vs. Open Hearings ...... 580 g. Continuances ...... 540 f. Right to Counsel ...... 580 h. Explanation of Rights; Apparent Eligibility ... 550 (1) In General ...... 580 i. Termination of proceedings ...... 552 (2) Right to Counsel before DHS ...... 582 6. Discovery ...... 552 (3) Right to Counsel before DOS ...... 583 a. Generally ...... 552 (4) Pro Bono Counsel ...... 583 b. Discovery Under Mandatory Access Law .. 552 (5) Ineffective-Assistance Claims ...... 583 c. FOIA (Freedom of Information Act) ...... 553 (6) Waiver of Right to Counsel ...... 595 (1) General Procedures ...... 553 (7) Right of Counsel to Receive Notice ... 596 (2) Procedures for Filing ...... 554 (8) Appointed Counsel ...... 596 (3) OPEN Government Act of 2007; (9) Transfer of Client Away from Lawyer ...596 FOIA Improvement Act of 2016 ...... 556 (10) Telephonic Appearance ...... 597

CHAPTER 3 • ADMISSION AND REMOVAL 67

(11) Limited Appearances ...... 597 (12) Notations re Special Sentencing Factors .. 634 (12) Monitoring Attorney-Client Comm...... 598 (13) Notations on Guilty Pleas ...... 634 (13) Notice to Counsel ...... 598 (14) Vacated Convictions ...... 634 (14) Service of Documents Electronically .. 599 (15) Statements in Brief Should Be (15) Admission/Stipulation by Counsel ..... 599 Treated as Inconclusive ...... 634 (16) Waiving Client’s Appearance ...... 601 (16) Police/Arrest Reports ...... 635 (17) Withdrawal of Counsel ...... 601 (17) Abstracts of Judgments ...... 635 (18) Registr. of Counsel, Accredited Reps ...... 601 (18) Rap Sheets ...... 635 g. Government Counsel ...... 601 (19) Interview Statements Taken from h. Friend of the Court ...... 602 Respondent or Any Other Person ...... 636 i. Unauthorized Practice of Law ...... 602 (20) Asylum Applications ...... 637 j. Law Students, Accredited Representatives, (21) Naturalization Certificates ...... 637 and Recognized Organizations ...... 603 (22) Foreign Law ...... 637 k. Attorney’s Ethical Conduct ...... 604 (23) Presumption of Regularity ...... 637 l. Attorney Sanctions ...... 605 (24) Offer of Proof ...... 637 (1) Contempt ...... 605 (25) Classified Information ...... 638 (2) Frivolous Behavior ...... 605 (26) Info Under Seal/Protective Order ...... 638 (3) Grounds for Discipline ...... 605 (27) Battered Spouse ...... 639 (4) Procedures ...... 607 (28) Amnesty Applications ...... 639 (5) Immediate Suspension ...... 607 (29) Sequestration of Witnesses ...... 639 (6) Violating Protective Order ...... 608 (30) Evidence May Not Be Submitted Af- (7) Reinstatement ...... 608 ter Close of Hearing ...... 640 (8) Board Has Sanctioned Attorneys ...... 608 (31) Failure to Present Evidence Not (9) DHS Rules of Conduct ...... 608 Abandonment of Application ...... 640 (10) Courts Referring Cases to the Bar (32) Negative Inference from Failure to and Other Federal Court Sanctions ..... 609 Produce Evidence ...... 640 (11) Circuit Court Sanctions in the u. Burden of Proof ...... 640 Course of Petitions for Review ...... 609 (1) In General ...... 640 (12) Criminal Charges Against Counsel ..... 609 (2) Burden Under IIRIRA for EWIs ...... 642 (13) Legal Malpractice Lawsuits ...... 610 (3) Access to Visa Docs in Meeting Burden .. 642 m. Right to Present Evidence and Cross- (4) Citizenship Cases ...... 642 Examine Witnesses ...... 610 (5) Cases Involving Criminal Conduct ..... 642 (1) Generally ...... 610 (6) Cases Involving Conditional Residency . 643 (2) Right to Present Evidence to IJ on (7) Burden and Standard of Proof in Review of Denied DHS Relief ...... 611 Seeking Relief from Removal...... 643 (3) Cross-Examination on Hearsay Docs .... 611 (8) Rule of Lenity and Rule Granting (4) No Violation of Right to Present Ev- Presumption to Alien ...... 644 idence or Due Process ...... 613 (9) Complexity of Immigration Law ...... 645 (5) Immigration Court Practice Manual (10) Review of IJ’s Finding is under the and Presentation of Evidence ...... 614 “Substantial Evidence” Test ...... 645 (6) Expert Testimony ...... 614 v. Interpretation ...... 646 (7) Polygraph Testimony ...... 616 w. Administrative Closure ...... 649 (8) Telephonic and Video Testimony ...... 617 x. Harmless Error Doctrine ...... 650 (9) Post-Traumatic Stress Disorder ...... 617 y. Immigration Court Record ...... 651 (10) Failure to Call Witness ...... 617 z. Presence of Respondent at Hearing ...... 652 n. Right to Opening Statement and Closing aa. Hearings Involving Minors ...... 653 Argument ...... 617 (1) Generally ...... 653 o. Right to Request Relief ...... 617 (2) Memos and Guidelines for UACs ...... 654 p. Security Checks ...... 618 (3) Removal Procedures...... 654 q. Motions to Suppress Procedures ...... 620 (4) Bond Involving Minors ...... 655 r. Privilege Against Self-Incrimination ...... 620 (5) Notice/Service Involving Minors ...... 655 s. Miranda Inapplicable ...... 621 (6) Asylum Proceeding ...... 655 t. Rules of Evidence ...... 621 (7) Voluntary Departure...... 656 (1) Rules relaxed in immigration hearing . 621 (8) Continuing Eligibility for Asylum/VD .. 656 (2) Hearsay Admissible ...... 622 (9) Right to Appointed Counsel...... 656 (3) Time for Submission of Evidence ...... 626 (10) U.N. Optional Protocol ...... 656 (4) Time for Submission of Applications . 627 bb. Persons Deemed Mentally Incompetent .. 656 (5) Authentication...... 627 (6) I‑9 and Other Employment Documents . 629 cc. Hearings In Absentia ...... 658 (7) Original Documents ...... 629 (1) Commenced by NTA ...... 658 (8) Admission of Crime for Inadmissi- (2) IMMACT90 ...... 664 bility Purposes ...... 630 (3) Proceedings Prior to §242B ...... 664 (9) Criminal Records Establishing Con- (4) No Failure to Appear ...... 664 victions under 8 CFR §1003.41 ...... 630 (5) Failure to Provide Notice as Defense ..... 665 (10) What Constitutes Record of Conviction 631 (6) Failure to Receive Notice as Defense ... 666 (11) Presentence Reports ...... 633

68 [Table of Contents, Chapter 3] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

X. Removal Procedures, cont’d 8. Mandamus and Physical Removal ...... 698 T. Removal Hearings, cont’d 9. Mandatory Detention During Removal Period . 698 7. Hearings, cont’d 10. Time Limitation on Removal ...... 698 cc. Hearings In Absentia, cont’d a. Generally ...... 698 b. Beyond 90-Day Detention ...... 699 (7) Exceptional Circumstances as Defense ... 672 c. Constitutional/Statutory Challenge to (8) Other Defenses ...... 674 Continued Detention ...... 699 (9) Right Against Self-Incrimination ...... 675 d. Timing of Habeas Action ...... 701 (10) Proceedings Involving Minors ...... 675 e. Indefinite Detention in Special dd. Summary Decision ...... 675 Circumstances ...... 701 ee. Self-Deportation ...... 675 f. Indefinite Detention of Inadmissible ff. Removal by Stipulation ...... 675 Persons ...... 701 gg. Collateral Estoppel ...... 676 11. Timing the 90-Day Period ...... 701 hh. Filing Documents ...... 677 a. Final Administrative Order of Removal ..... 701 b. Date of Reviewing Court’s Final Order if ii. Fee Procedure ...... 677 Removal Order Was Judicially Stayed jj. Recusal and Misconduct of IJ ...... 677 Pending Federal Review ...... 701 (1) In General ...... 677 c. Date Person Is Released from Non-DHS (2) Remanding Case to Different IJ ...... 680 Detention ...... 703 (3) IJ At Bond and Removal Hearing ...... 681 12. Tolling of 90-Day Period Due to (4) Appointment of Temporary IJs ...... 682 Detainee’s Conduct ...... 703 (5) Filing a Complaint Against an IJ ...... 682 13. Detainees Subject to Final Orders of (6) Immunity from Suit ...... 683 Removal within 90-Day Removal Period .... 704 (7) Obtaining Complaint Records ...... 683 14. Detainees Subject to Final Order of Removal (8) Completion Quotas for IJs ...... 683 Where No Significant Likelihood of kk. Right to Communicate with Embassy ...... 683 Removal in Reasonably Foreseeable Future ... 705 ll. Relation Back Doctrine ...... 685 15. Challenges to Regulations ...... 707 8. Summary (Expedited) Removal for 16. Supervised Release and ISAP Program ...... 708 Nonresident Aggravated Felons ...... 685 17. Federal Jurisdiction over Detention during 9. Expedited Removal Proceedings for Removal Process ...... 709 Persons Serving Prison Sentences ...... 687 18. Application of INA §236 or INA §241 ...... 709 19. Adam Walsh Act and BOP/ICE Detention .. 710 10. Stipulated Judicial Order of Deportation ...... 688 20. Withholding or Deferral of Removal ...... 710 11. Judicial Deportation ...... 688 21. Self-Removal ...... 710 12. Terrorist Removal Courts ...... 689 22. Employment Authorization ...... 710 13. Reinstatement of Removal Order ...... 690 23. Absconders ...... 710 a. In General ...... 690 24. Due Process Right to Organize Affairs b. No Asylum ...... 690 Before Physical Deportation ...... 711 c. Deportation Orders Entered before IIRIRA ... 691 25. Enforcement Priorities Including Detention . 711 d. Reinstatement May Retroactively 26. DHS Priorities ...... 711 Eliminate Substantive Defenses...... 691 e. Constitutional Challenges to Procedure ...... 692 W. Stays of Deportation ...... 711 f. Constitutional and Legal Challenges to 1. Procedure ...... 711 Underlying Removal Order ...... 693 2. Jurisdictional Question ...... 711 g. Procedures ...... 693 3. Stay Order and Contempt ...... 712 h. Relief Available ...... 693 4. Stay Requests and Pending U Visa i. Administrative Review ...... 693 Applications ...... 712 j. Judicial Review ...... 694 X. Bilateral or Multilateral Agreements Regard- k. Res Judicata/Collateral Estoppel ...... 695 ing the Removal Process ...... 712 l. FTCA Action ...... 695 Y. Early Removal of Nonviolent Offenders ...... 712 U. Cancellation of Visa...... 695 1. Generally ...... 712 V. Physical Removal ...... 695 2. No Private Right of Action under Statute .... 713 1. Four-Step Process in Physical Removal ...... 695 3. No Right to Compel AG to Deport 2. Due Process Challenges to Designation Someone ...... 713 and Removal ...... 697 Z. Sanctions Against Countries for 3. Deportation Designation May Be Disregarded .. 697 Refusing Deportees ...... 713 4. Deportation and Imprisonment ...... 697 1. Cambodia Sanctions ...... 713 5. Deportation and Civil Commitment ...... 698 2. Eritrea Sanctions ...... 713 6. Notification of Deportation ...... 698 3. Guinea ...... 713 7. Sedation of Deportee ...... 698 4. Sierra Leone ...... 714

CHAPTER 4 FLEEING PERSECUTION: REFUGEES, ASYLEES, AND OTHERS

I. Categories of Protection 5. Government Unable or Unwilling to for Persons Fleeing Persecution Control Persecutors ...... 745 A. Introduction ...... 721 6. On Account of Race, Religion, National B. Sources of Law ...... 721 Origin, Political Opinion, or Membership 1. International Law ...... 721 in a Particular Social Group ...... 748 2. Domestic Law ...... 723 a. Generally ...... 748 C. Persons Protected Under U.S. Law ...... 724 b. Persecutor’s Views as an Element ...... 748 II. Overseas Refugees c. Political Opinion ...... 749 A. Definition of Refugee ...... 724 (1) Generally ...... 749 (2) Neutrality as Political Opinion ...... 750 B. Dual Nationality Bar ...... 725 (3) Imputed Political Opinion ...... 750 C. Persecution of Others as Bar to Status ...... 725 (4) Imputed Religious Views ...... 752 D. Normal Flow Refugees ...... 726 (5) No Imputed Opinion ...... 752 E. Emergency Flow Refugees ...... 727 d. Membership in a Particular Social Group ... 753 F. Designation of Certain Groups for Refugee (1) Generally ...... 753 Protection ...... 727 (2) U.N. Guidelines ...... 756 (3) Past vs. Future Persecution Social G. Iraqis Employed by U.S. Government in Iraq ... 727 Group Claims ...... 756 H. Right to Counsel Denied ...... 727 (4) Imputed Social Group ...... 756 I. North Korean Human Rights Act ...... 727 (5) Membership in Group ...... 756 J. “Bring Them Home Alive Act”...... 727 (6) Circuit Court Standards ...... 756 (7) Cases Finding Social Group...... 760 K. Refugee/Parole Program for Minors from El (8) Cases Rejecting Social Group ...... 764 Salvador, Guatemala and Honduras ...... 727 (9) Proving Particular Social Group L. Removal of Refugees ...... 728 Claims ...... 767 M. Spouses and Children of Refugees ...... 728 e. Mixed-Motive Cases ...... 767 (1) Generally ...... 767 III. Asylum (2) “One Central Reason” in Withhold- A. Definition of Asylee ...... 728 ing Cases ...... 768 1. Interdiction on the High Seas ...... 728 (3) BIA on Mixed Motive ...... 769 2. Nationality and Statelessness ...... 729 (4) Cases Reversing IJ/BIA ...... 769 (5) Cases Affirming IJ/BIA ...... 770 3. Admission ...... 730 4. Persecution ...... 730 f. “On Account of” ...... 771 a. Generally ...... 730 B. Past-Persecution Claims ...... 775 b. Persecution in Third Country Not 1. Generally ...... 775 Relevant Unless Stateless ...... 730 2. IJ Required to Make Finding ...... 775 c. Permanent or Serious Injury Not Required . 731 3. No Subjective Basis for Past Persecution..... 775 d. Custodial Interrogation ...... 733 4. Pattern or Practice ...... 775 e. Rape or Sexual Assault ...... 733 5. Presumption of Well-Founded Fear ...... 776 f. Forced Medical Examination ...... 733 6. Past Persecution and Withholding ...... 776 g. Physical Harm or Detention Not 7. Rebuttal of Well-Founded Fear Presumption .. 777

Amounting to Persecution ...... 733 a. Generally ...... 777 h. Persecution Arising from Emotional Trauma . 735 b. Changed Circumstances ...... 777 i. Harassment ...... 735 c. Safe Relocation ...... 779 j. Discrimination ...... 736 d. Safe Relocation vs. Changed Conditions .... 780 k. Economic Deprivation ...... 737 e. Safe Relocation or Changed Conditions l. Stripping Citizenship ...... 738 Not Applicable to Refugees ...... 780 m. Conscription by Guerilla Organization ...... 738 f. Standard for Rebuttal ...... 780 n. Civil War, General Conditions ...... 739 g. Cases Where Government Failed to Rebut o. Laws of General Application ...... 740 Past Persecution ...... 781 p. Prosecution ...... 740 h. Cases Supporting Rebuttal of Past q. Intent to Harm Distinct from Persecution ... 743 Persecution ...... 782 r. Breach of Confidentiality of Asylum ...... 743 i. Humanitarian Asylum ...... 783 s. Single Incident Sufficient ...... 744 (1) Due to Severe Past Persecution ...... 783 t. Periodic Persecution ...... 744 (2) Due to Other Serious Harm ...... 784 u. Persecution Should be Treated 8. Corroboration ...... 784 Cumulatively ...... 744 715 716 [Table of Contents, Chapter 4] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

III. Asylum, cont’d 2. Mandatory Denial Because of Aggravated Felony or by Regulation ...... 801 C. Well-Founded-Fear Claims ...... 785 3. Discretionary Denial for Other Crimes ...... 801 1. Generally ...... 785 4. Pre–Apr. 1, 1997 Applications ...... 802 2. Persecutor Need Not be Presently Aware 5. Jurisdictional Questions ...... 802 of Offending Act ...... 785 F. Discretionary Grounds for Denial ...... 802 3. Disclosure of Asylum Application as G. Reconsideration of Asylum Denial ...... 803 Independent Basis ...... 786 4. Burden of Proof in Pattern-or-Practice H. Commonwealth of Northern Mariana Islands ... 803 Cases ...... 786 IV. Withholding of Removal 5. Burden of Proof, Disfavored Group ...... 787 A. Generally ...... 803 6. No Well-Founded Fear if Internal B. Mandatory Prohibition Against Removal ...... 803 Relocation is Reasonable ...... 788 a. Generally ...... 788 C. Past Persecution and Withholding ...... 804 b. Cases Finding Relocation Unreasonable / D. AO Cannot Decide Withholding ...... 804 Countrywide Persecution ...... 788 E. No Derivative Benefit in Withholding ...... 804 c. Cases Finding Relocation Reasonable / F. No Path to LPR Status ...... 804 No Countrywide Persecution ...... 789 d. No Deportation to Third Country Without G. Court Must Enter Order of Removal to Grant Considering Well-Founded Fear ...... 789 Withholding ...... 804 D. Mandatory Denial of Asylum ...... 789 H. Grounds of Disqualification for Withholding ... 805 1. Persecution of Others ...... 789 1. Nazism or Genocide ...... 805 2. Particularly Serious Crime ...... 790 2. Persecution of Others ...... 805 3. Serious Nonpolitical Crime ...... 790 3. Particularly Serious Crime; Danger to 4. Danger to U.S. Security ...... 790 Community ...... 805 5. Terrorism-Related Inadmissibility Grounds a. Criteria ...... 805 (TRIG) ...... 790 b. Not Particularly Serious Crimes ...... 807 a. Generally ...... 790 c. Particularly Serious Crimes ...... 807 b. Spouses and Children ...... 791 d. Danger to the Community ...... 809 c. Exemptions for TRIG Bars ...... 791 4. Serious Nonpolitical Crime ...... 809 d. Jurisdictional Issues ...... 791 a. In General ...... 809 6. Firm Resettlement ...... 791 b. Participation in Coup ...... 810 a. Generally ...... 791 c. Statutory Bar ...... 810 b. Direct Offer vs. Totality of Circumstances ... 792 d. Cases Finding Disqualification ...... 811 c. BIA Framework ...... 792 5. Danger to U.S. Security/Terrorism Bar ...... 811 (1) Direct Evidence by DHS ...... 792 6. Burden of Proof ...... 812 (2) Indirect Evidence by DHS ...... 792 7. Standard of Proof ...... 812 (3) Applicant’s Burden ...... 793 8. Mandatory Denial ...... 812 (4) IJ Decision ...... 793 I. Judicial Review of Case-Specific Denials ...... 812 (5) Matter of A-G-G- Applied ...... 793 J. Effective Dates ...... 813 d. Burden of Proof ...... 793 e. Dual Nationality vs. Firm Resettlement ..... 794 V. Convention Against Torture (CAT); f. Fear in Third Country ...... 794 Deferral of Removal g. Parent Status Imputed to Child ...... 794 A. Generally ...... 813 h. Cases Finding No Resettlement ...... 794 B. CAT Regulations ...... 814 i. Cases Finding Resettlement ...... 794 7. Safe 3rd Country: Canadian-U.S. Agreement .. 795 C. Extradition Proceedings ...... 815 a. Generally ...... 795 D. Definition of Torture ...... 815 b. Procedure ...... 795 1. Generally ...... 815 c. Exceptions to Enforcement of Agreement ..... 795 2. BIA Definition of Torture ...... 816 d. Moratorium on Removal ...... 796 3. DOJ Analysis of Torture Definition ...... 817 e. IJ Jurisdiction ...... 796 4. Excluded Conduct ...... 817 8. Previous Asylum Application ...... 796 5. Reason for Torture Need Not be Political .... 818 9. One-Year Time Limit ...... 796 E. Acquiescence by Government Officials ...... 818 a. Generally ...... 796 1. Generally ...... 818 b. Changed Circumstances ...... 797 2. Willful Acceptance Standard ...... 819 c. Extraordinary Circumstances ...... 798 3. Willful Blindness Standard ...... 819 d. Corroboration Not Necessarily Required .... 799 4. Acting in an Official Capacity ...... 820 e. Final Order of Removal ...... 800 5. Physical Custody/Control Not Required ...... 820 f. Right to Notice of One-Year Deadline to File for Asylum ...... 800 6. Reporting of Torture to Government Not 10. Applications Filed before Apr. 1, 1997 ...... 800 Required ...... 820 11. Unaccompanied Minor Exception ...... 800 7. Some Government Action to Stop Torture 12. Burden of Proof re Disqualification ...... 800 Does Not Necessarily Bar Claim ...... 820 13. Judicial Review ...... 800 8. Cases Finding No Acquiescence ...... 820 F. Burden of Proof: More Likely Than Not ...... 821 E. Criminal Bars to Asylum ...... 800 1. Generally ...... 821 1. Generally ...... 800 2. Objective Nature of Standard ...... 822 3. Evidence ...... 823

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4. Cases Where Burden of Proof Was Met ...... 824 K. Confidentiality ...... 835 5. Cases Where Burden of Proof Was Not Met ... 824 L. Special Adjustment Program ...... 835 6. Burden of Proof and Asylum/Withholding .. 825 M. Salvadorans and Guatemalans...... 835 7. Standard of Review ...... 825 1. TPS for Salvadorans ...... 835 G. Procedural Issues Involving CAT ...... 825 2. Salvadoran and Guatemalan Program ...... 835 1. Applicable to Country of Removal Only ...... 825 3. Special Rule Cancellation for Salvadorans 2. Motions to Reopen ...... 826 and Guatemalans ...... 836 3. Continuances to Apply for CAT ...... 826 N. TPS for Nationals of Somalia ...... 836 H. Difference Between Asylum/Withholding and O. TPS for Nationals of Sudan ...... 836 Deferral of Removal Under CAT ...... 826 P. TPS for Nationals of South Sudan ...... 836 I. Termination of Deferral of Removal ...... 826 Q. TPS for Hondurans and Nicaraguans ...... 836 J. Termination Through Diplomatic Assurances R. TPS for Haitians ...... 836 Against Torture ...... 826 S. TPS For Syrians ...... 838 K. CAT Claims in Streamlined or Expedited Re- T. TPS for Nationals of Yemen ...... 838 moval Proceedings ...... 826 U. TPS for Nationals of Liberia, Guinea, L. Application ...... 826 and Sierra Leone Ended ...... 838 M. Administrative Review of CAT Claims ...... 826 V. TPS for Nepalis ...... 838 N. Judicial Review of CAT Claims ...... 827 IX. Extradition of Persons VI. Parolees Fearing Persecution or Torture A. Generally ...... 827 B. The Lautenberg Amendment ...... 827 X. Substantive Due Process C. Commonwealth of Northern Mariana Islands ... 828 XI. The Application Process D. Filipino World War II Veterans Parole A. Processing of Refugees ...... 840 (FWVP) Program ...... 828 1. Annual Refugee Admission Quotas ...... 840 VII. Extended VD; DED; Special Humanitarian 2. Refugee Requirements for Approval ...... 840 Relief Programs 3. Designation for Refugee Process by Priority ... 840 4. Refugee Applications Security Screening .... 841 A. Extended Voluntary Departure (EVD) ...... 828 5. Enhanced Vetting of Refugees ...... 841 B. Deferred Enforced Departure (DED) ...... 829 6. Requesting Review of Denied Refugee C. Special Humanitarian Relief Programs ...... 829 Status ...... 842 VIII. Temporary Protected Status (TPS) 7. Privacy Impact Assessment Report ...... 842 A. Generally ...... 829 8. Categories of Inadmissibility ...... 842 a. Inadmissibility Automatically Waived ...... 842 B. Attributes of TPS ...... 830 b. No Waiver Available ...... 842 1. Generally ...... 830 c. Waiver Available ...... 842 2. Status ...... 831 d. Form I‑602 ...... 842 C. Eligibility for TPS ...... 831 9. Ineligibility Due to Firm Resettlement ...... 842 1. Identity and Nationality ...... 831 10. Ineligibility Due to Immediate Relative or 2. Presence in U.S...... 831 Special Immigrant Status ...... 843 3. Must Be Otherwise Admissible ...... 832 11. Admission to the U.S...... 843 4. Must Not Be Firmly Resettled in 3rd Country . 832 12. Admission of Refugees by AG ...... 843 5. Must Not Be Ineligible Because of 8 CFR 13. Termination of Refugee Status ...... 843 §§244.4, 1244.4 ...... 832 14. Removal Proceedings Against Refugee ...... 843 6. Must Register for TPS Within Period 15. Spouse and Children of Refugees ...... 843 Provided by AG ...... 832 D. Spouse and Children ...... 832 B. Applying for Asylum, Withholding of Re- E. Denial of TPS ...... 833 moval, and CAT Protection ...... 844 1. Establishment of Procedures ...... 844 F. Termination; Withdrawal of Status ...... 833 2. Effective Dates ...... 844 G. Temporary Treatment for Eligible Applicant .... 833 3. Asylum at the Border ...... 844 H. Application Procedure ...... 833 4. Asylum, Withholding, and CAT Relief 1. Required Documents ...... 833 before AO (Affirmative Asylum Claims) .... 844 2. Application Filed During Registration a. Processing the Asylum Application ...... 844 Period with Fee ...... 833 b. Dependents ...... 845 3. Late Filing ...... 833 c. Consequences of Filing Asylum 4. Personal Appearance ...... 834 Application ...... 845 5. Re-registration ...... 834 (1) Use of Info on Application as Basis 6. Fee Waivers ...... 834 for Removal Proceedings ...... 845 (2) Use of Info to Establish Deportability .... 845 I. Administrative Closure for Person in Removal (3) Service ...... 845 Proceedings ...... 834 (4) Signatures ...... 845 J. Administrative and Judicial Review ...... 834 (5) Frivolous Applications ...... 846 1. AAO May Review Denial of TPS ...... 834 (6) Unlawful Presence ...... 849 2. Employment Authorization ...... 835 d. Consequences of Making False Statement 3. Limitations on Review ...... 835 in Asylum Interview ...... 849 e. Confidentiality ...... 849

718 [Table of Contents, Chapter 4] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

XI. The Application Process, cont’d f. Role of State Department ...... 861 B. Applying for Asylum, and CAT Protection, cont’d g. Hearings and Procedural Issues on 4. Affirmative Asylum Claims, cont’d Asylum and Other Claims ...... 862 (1) Hearing ...... 862 f. NIV Status & Asylum Application ...... 849 (2) Employment Authorization ...... 862 g. Asylum Offices ...... 850 (3) Failure to Appear ...... 862 h. Withdrawal of Asylum Application ...... 850 (4) Evidence and Testimony ...... 862 i. Asylum Interview ...... 850 (5) Frivolous Application ...... 862 (1) Generally ...... 850 (6) Mandatory Denial Asylum/With- (2) Timing of Interview & Adjudication .. 851 holding ...... 862 (7) Discretionary Denial of (3) Departure from U.S...... 851 Asylum/Withholding Grant ...... 863 (4) Expedited Applications ...... 851 (8) Asylum Grant ...... 863 (5) LGBT Cases ...... 851 h. Equal Treatment in Adjudication of (6) Application at Land Border ...... 851 Asylum Claims ...... 863 (7) DOS & Other Government Materials .... 851 9. Special Limited Hearings on Asylum and (8) Retention of Applicant’s Docs ...... 852 (9) Background Checks ...... 852 Withholding ...... 863 (10) Asylum Officer’s Interview Notes 10. Children Applying for Asylum ...... 864 and Martins FOIA Settlement ...... 852 11. Parents Cannot Apply Derivatively (11) Direct Review of Denial by BIA ...... 852 Through Their Child ...... 865 j. Jurisdiction and Referral to IJ by AO ...... 852 12. Derivative Benefits Under Withholding...... 866 (1) AO’s Decision/Motion to Reopen ...... 852 (2) Effect of Denial on Family Members ... 853 XII. Representing the Asylum, CAT, and (3) Jurisdiction before AO or IJ? ...... 853 §241(b)(3) Applicant k. Withholding of Removal and CAT A. Prehearing and Premerits Representation ...... 866 Applications before AO ...... 853 1. Generally ...... 866 5. AO’s Criteria for Deciding Asylum Claims . 853 2. Access to the Client ...... 866 a. In General ...... 853 3. Right to Counsel ...... 867 b. Denial of Right to Apply for Asylum ...... 853 4. Transfer of Detainee ...... 868 c. Discretionary Factors ...... 853 5. Duty to Asylum Seekers in Custody ...... 868 (1) Safe Third Country ...... 853 6. Change of Venue ...... 868 (2) Circumventing Refugee Procedures ... 854 7. Right to Apply for Asylum ...... 868 d. Revocation of Asylum/Withholding ...... 854 a. Generally ...... 868 e. Issuance of AO’s Decision ...... 854 b. Right to Present Evidence ...... 868 6. AO and Credible-Fear Determinations ...... 855 c. No Right to Asylum ...... 869 a. Generally ...... 855 8. Right to Release from Detention ...... 869 b. Credible-Fear Procedures ...... 855 a. Generally ...... 869 c. IJ Review of Credible-Fear Determination . 855 b. Mandatory Detention ...... 870 d. Reinterview After Denial, Before Departure .. 856 c. Release Pending Appeal...... 870 e. Right to Notice of One-Year Deadline to d. Persons for Whom DHS Is Not Actively File for Asylum ...... 856 Seekling Removal ...... 870 7. AO and Reasonable-Fear Determination 9. Right to Work ...... 870 for Withholding of Removal ...... 856 a. Generally ...... 870 a. Generally ...... 856 b. The EAD/Asylum Clock ...... 871 b. Reasonable Fear in Custody ...... 856 c. Tolling of the EAD Clock ...... 871 c. Reasonable Fear Found ...... 857 d. Immigration Court Filing ...... 872 d. No Reasonable Fear Found ...... 857 e. Change of Venue Requests ...... 872 e. Judicial Review ...... 857 f. Aggravated Felons ...... 872 8. Asylum, Withholding, and CAT Claims g. Failure to Appear ...... 872 Before IJ ...... 857 h. Procedures Regarding Asylum Clock ...... 872 a. Generally ...... 857 i. Renewal/Termination of EAD and EAD on Appeal ...... 873 b. IJ Advisement re Frivolous Applications.... 858 j. ABT Settlement ...... 873 c. IJ Advise Applicant of Asylum/Withholding/CAT ...... 858 k. Lost I‑589 ...... 873 d. Differences Between Asylum and l. Administrative Closure of Case (for Withholding ...... 858 Prosecutorial Discretion) ...... 873 e. Difference Between Asylum, 10. Right to Travel ...... 873 Withholding, and Deferral under CAT ...... 859 11. Security Procedures in Asylum (1) Application Procedure ...... 859 Applications ...... 874 (2) Mandatory Bars to Withholding Not 12. Disclosure of Application to Third Parties ... 874 Applicable to Deferral Under CAT .... 859 B. The Hearing Process ...... 874 (3) Burden in CAT ...... 859 (4) Must Consider All Evidence of Torture . 859 1. Generally ...... 874 (5) Government Acquiescence ...... 860 2. Proving the Asylum, Withholding, or CAT (6) Different Analysis for CAT and Claim ...... 874 Asylum/Withholding Claims ...... 860 a. Burden of Proof ...... 874 (7) Detention ...... 861 b. Standard of Persuasion for Withholding ..... 875 (8) Application of REAL ID...... 861 c. Standard of Persuasion for Asylum ...... 875 (9) Termination of Deferral ...... 861 d. Relationship Between Standards for (10) No CAT Claim in §235 Proceedings .... 861 Withholding and Asylum ...... 876 (11) Judicial Review ...... 861

CHAPTER 4 • FLEEING PERSECUTION: REFUGEES, ASYLEES, AND OTHERS 719

e. Nature of Proof ...... 876 (29) Inconsistency with Other Types of (1) Generally ...... 876 Immigration Applications...... 916 (2) Specific and Detailed Claim ...... 876 (30) PTSD and Credibility ...... 916 (3) Pattern or Practice ...... 876 (31) False Statements and Credibility ...... 916 (4) Current Political Context ...... 877 (32) Minor Inconsistencies and Credibility ... 917 (5) Administrative Notice of Conditions .. 877 (33) Materiality of Inconsistent Statements ... 918 (6) Right to Respond to Administrative (34) Credibility and Fraudulent Documents .. 918 Notice ...... 878 (35) Adverse Credibility Cannot be Based (7) Difficulty in Establishing Claim ...... 878 on Speculation and Conjecture ...... 918 (36) Lack of Credibility Not Always Fatal . 921 f. Documentary Evidence ...... 879 (37) Substantial Evidence Standard of (1) General Political Conditions ...... 879 Review ...... 922 (2) Availability of Corroborating Evidence . 880 (38) IJ Error in Credibility Assessment (3) Credible Testimony Sufficient ...... 880 May Not Result in Reversal...... 922 (4) Lack of Corroboration, Pre–REAL ID ... 881 (39) Adverse-Credibility Determination (5) REAL ID Act and Corroboration ...... 881 Ruled Not Supported by Substantial (6) Prior Notice Required Before Find- Evidence ...... 923 ing Deficiency ...... 882 (40) Adverse-Credibility Determination (7) Evidence Cannot Be Reasonably Ob- Supported by Substantial Evidence .... 928 tained ...... 883 (41) Right to Present Evidence and (8) Cannot Require “Strong” or “Con- Credibility ...... 935 clusive” Corroborating Evidence ...... 883 (42) Brief Testimony and Credibility...... 935 (9) Continuances to Obtain Corroboration .. 883 (43) Nontransfer of Credibility Finding ..... 936 (10) Circuit Courts on Corroboration (44) Credibility and Perjury ...... 936 Standard Pre- and Post–REAL ID ...... 883 h. Types of Evidence ...... 936 (11) Standard of Review for Corroboration ... 886 (1) Evidence of Persecution of Family (12) Corroboration Not Required ...... 886 Members ...... 936 (13) Credibility & Documentary Evidence .... 887 (2) Evidence of Religious Persecution ..... 941 (14) Documentary Evidence Must Be (3) Evidence of Union or Other Organi- Evaluated ...... 891 zational Membership ...... 945 (15) Authentication Reqts. for Documents .... 891 (4) Return Trip to Home Country Doesn’t (16) Excluding Documentary Evidence ..... 891 Necessarily Negate Fear of Persecution . 945 (17) Types of Documentary Evidence...... 891 (5) Evidence of Valid Visa or Passport .... 946 (18) Country Reports and Profiles ...... 893 (6) Remaining in Country Unharmed ...... 946 (7) Criminal Activity in U.S. Does Not g. Testimonial Evidence ...... 900 Negate Fear of Persecution ...... 947 (1) Generally ...... 900 (8) Evidence of Military Action Di- (2) Credibility Analysis and Failure of rected at Applicant ...... 947 Proof ...... 901 (9) Evidence of Inconsistent Treatment (3) REAL ID Act and Corroboration ...... 901 by Government ...... 947 (4) REAL ID Act and Credibility Deter- (10) Evidence of Gender-Based Persecution . 948 minations ...... 901 (11) Evidence of Domestic Violence, (5) Federal Review Not Toothless ...... 902 Rape and Physical Abuse ...... 948 (6) Reversal of IJ/BIA under REAL ID .... 902 (12) Evidence of Persecution of Women ... 949 (7) Presumption of Credibility ...... 903 (13) Evidence of Sexual Orientation ...... 949 (8) Credibility Determinations Given (14) Evidence of Female Genital Mutilation . 950 Great Weight ...... 903 (15) Marriage as Grounds for Asylum ...... 951 (9) BIA Standard ...... 904 (16) Evidence of Extortion by Govern- (10) IJ Must Make Efforts to Clarify ment or Others ...... 952 Vagueness ...... 904 (17) Anti-Government Actions in U.S...... 952 (11) Demeanor ...... 904 (18) Evidence of Specific Threats by (12) Factors an Asylum Officer Should Guerrillas ...... 953 Not Consider ...... 905 (19) Circumstantial Evidence ...... 953 (13) Critical of IJ’s Credibility Assess- ments ...... 905 (20) Treatment Toward Prisoners ...... 953 (21) Evidence of Forced Abortion or In- (14) Confrontation of Inconsistency Prior voluntary Sterilization, or Re- to Making Credibility Assessment ..... 907 sistance to Coercive Population (15) Credibility and the Doctrine of Control Programs ...... 953 Falsus in Uno, Falsus in Omnibus ...... 907 (22) Former Police, Army Personnel, (16) Silence and Credibility Issues ...... 908 Court Personnel, Security Personnel .. 960 (17) Failure to Seek Asylum in Third (23) Drug and Other Informants ...... 960 Country and Credibility ...... 908 (24) Whistleblowing and Exposing Cor- (18) False Travel Docs and Credibility ...... 908 ruption ...... 961 (19) Voluntary Return and Credibility ...... 908 (25) Bribery of Government Officials to (20) Alcohol or Drug Use and Credibility .. 908 Avoid Persecution ...... 963 (21) Failure to Call Witnesses or Produce (26) Failure to Seek Medical Treatment Evidence and Credibility ...... 908 Does Not Determine Validity ...... 963 (22) Credibility and Hearsay ...... 909 (27) Economic Status ...... 963 (23) Credibility and Forum Shopping ...... 909 (28) Identifying Assailants ...... 963 (24) Credibility and IJ’s Conduct ...... 909 (29) Treatment Toward Others Similarly (25) Lack of Knowledge re Geography ...... 909 Situated Not Required ...... 963 (26) Credibility and Inconsistent Asylum (30) Previous Grant of Asylum Does Not Applications ...... 909 Ensure Subsequent Asylum/With- (27) Similarities in Different Asylum Appli- holding ...... 963 cations as Basis for Lack of Credibility . 912 (28) Inconsistencies and Omissions at i. Classified Information ...... 963 Airport and Other Interviews ...... 913 j. Information Under Seal/Protective Order ... 963

720 [Table of Contents, Chapter 4] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

XII. Representing the Asylum, CAT, 4. Immediate Employment ...... 982 and §241(b)(3) Applicant, cont’d 5. Refugee Travel Document ...... 982 B. Revocation/Termination of Asylum/With- C. Post-Trial Relief ...... 963 holding ...... 983 1. Motions to Reopen ...... 963 a. Generally ...... 963 C. Revocation of Withholding ...... 984 b. Exceptions to Time and Numerical Limitations on Motions to Reopen ...... 964 XIV. Adjustment of Status & Special Legislation c. Motions Must Comply with Regulations .... 964 A. Eligibility and Application Process, Generally ... 984 d. Grounds for Denial of Motion to Reopen ... 964 B. Adjustment While Asylum Is Pending ...... 984 e. Motions to Reopen for Withholding ...... 965 C. Parolee Adjustment ...... 985 f. No Prima Facie Case ...... 965 g. Prima Facie Case ...... 965 D. Cuban Refugee Adjustment Act ...... 985 h. No Automatic Stay of Removal ...... 965 1. In General ...... 985 i. Post-Departure Motions ...... 965 2. Spouse and Children ...... 985 j. Scope of Review of Reopened Case ...... 966 3. Asylum or Other Status Unnecessary as k. Pro Se Litigant and Motions to Reopen ...... 966 Long as Inspected and Admitted or Paroled .. 986 2. Appeals to BIA ...... 4. Cannot Adjust under §209 Unless Refugee 3. Motions to Remand ...... 967 or Asylee ...... 986 4. Judicial Review ...... 967 5. EWI Will No Longer Get Benefit under a. Generally ...... 967 Cuban Adjustment Act ...... 986 b. No Judicial Review of Certain Claims ...... 967 a. Generally ...... 986 c. Stays of Removal During Judicial Review . 968 b. Diplomatic Relations and End of Special d. Old or Stale Administrative Record ...... 968 Treatment for Cubans Who Are Arriving e. Standard of Review for Motions to Aliens or Subject to Deportation ...... 987 Reopen ...... 968 6. Roll-Back Date ...... 987 f. Standard of Review of Withholding vs. 7. Waivers ...... 987 Asylum ...... 969 8. Conditional Repeal...... 987 g. Review of Factual Determinations under 9. Cuban Parole Programs ...... 987 Substantial-Evidence Test ...... 969 10. Jurisdictional Issues ...... 988 h. Cases Reversing Denial of Asylum/ Withholding/CAT under Elias-Zacarias E. Adjustment of Status ...... 988 Standard ...... 969 1. Refugees ...... 988 i. Cases Upholding Denial of Asylum/ Withholding/CAT under Elias-Zacarias a. Generally ...... 988 Standard that Evidence Did Not b. Inadmissibility ...... 989 “Compel” Reversal ...... 973 c. Waiver Application ...... 989 j. Cases Not Applying or Stating the 2. Asylees ...... 989 Application of Elias-Zacarias in a. Generally ...... 989 Reversing IJ/BIA ...... 978 b. Spouse and Children ...... 989 k. Credibility Assessments under c. Divorce and Continuing Right to Substantial-Evidence Standard ...... 979 Adjustment ...... 990 l. Manifestly-Contrary-to-Law Standard ...... 979 d. Aged-Out Children and CSPA...... 990 m. Application of Incorrect Standard ...... 980 e. Death of Principal Asylee and Right to n. Legal Questions Reviewed De Novo ...... 980 Adjust...... 990 o. Pattern-or-Practice Cases ...... 980 f. AOS and Collateral Estoppel ...... 990 p. Remands and INS v. Ventura ...... 980 3. Procedures ...... 990 q. Judicial Review of CAT Claims ...... 980 4. Travel ...... 990 r. Judicial Review of Corroboration ...... 981 5. One-Year Retroactive Date ...... 990 6. Effect of Grant ...... 990 XIII. Asylum Grants and Revocation 7. Removal of LPRs Who Held Refugee Status .. 990 A. Asylum Grant ...... 981 8. Asylee in Removal Proceeding ...... 991 1. In General ...... 981 XV. Legislative History and Reference Material 2. Spouse and Children of Asylee ...... 981 3. Withholding Does Not Result in A. Legislative History ...... 991 Derivative Benefits ...... 982 B. Reference Material ...... 992

CHAPTER 5 NONIMMIGRANT VISAS

I. Distinguishing Immigrants from III. Admission to U.S. Nonimmigrants A. Visa Does Not Guarantee Admission ...... 1015 A. In General ...... 999 B. Must Present Unexpired Visa and Passport B. Nonimmigrants: General Characteristics ...... 999 Valid for 6 Months ...... 1015 C. US-VISIT / OBIM ...... 1015 D. Advanced Passenger Information Sys. (APIS) ... 1016 II. Procedures E. Arrival/Departure Information Sys. (ADIS) .... 1016 A. Consular Review ...... 1002 F. Secure Flight Program ...... 1016 1. BioVisa Program ...... 1002 G. National Vetting Center ...... 1016 2. Personal Appearance ...... 1002 3. Interview ...... 1002 H. Electronic System for Travel Auth. (ESTA) .... 1017 4. DHS Involvement in Consular Processing . 1003 I. Western Hemisphere Travel Initiative (WHTI) ... 1018 5. Consideration of Visa Application ...... 1004 J. DHS-TRIP: Challenging Lookout and Secure 6. Fraud Investigations by DOS ...... 1004 Flight Determination ...... 1018 7. Reciprocal Procedures ...... 1004 K. Cannot Have Intent to Enter for Purpose Dif- 8. Visa Fees ...... 1004 ferent from that Permitted Under Visa ...... 1018 9. Stateside Third-Country Nationals (TCNs) ... 1004 L. If Admitted at Land Border ...... 1018 B. Visa Processing of NIVs ...... 1005 M. Time of Initial Admission ...... 1018 1. Issuance ...... 1005 N. Departure Validation; Recording Departure ... 1018 2. Denials ...... 1005 O. Criminal Activity in U.S...... 1019 3. Advisory Opinions ...... 1005 P. Extension of Stay ...... 1019 4. Judicial Review ...... 1006 Q. Change of Status ...... 1021 5. Approval ...... 1006 1. Generally ...... 1021 6. A Note on Signatures ...... 1006 2. Bridge Filings ...... 1023 7. Security Issues...... 1006 3. I‑129 Petitions ...... 1023 8. Overstay Inquiry ...... 1008 4. Diplomats ...... 1024 9. Admission to the U.S...... 1008 5. Appeals ...... 1024 C. INA §221(g) Denial Procedures ...... 1009 R. Maintenance of Present Status ...... 1024 D. Validity of Issued Visa ...... 1009 S. Adjudication of Petitions ...... 1024 E. INA §222(g); Overstays ...... 1010 1. Premium Processing ...... 1024 1. Generally ...... 1010 2. Expedited Processing ...... 1025 2. Extraordinary Circumstances ...... 1010 3. USCIS Forms Have the Force of Law ...... 1025 3. Physicians ...... 1010 4. Deference to Prior Determinations ...... 1025 4. Asylum and TPS ...... 1010 5. RFEs and NOIDs ...... 1025 5. Voluntary Departure ...... 1010 6. Validation Instrument for Business 6. Extensions of Stay or Change of Status ..... 1010 Enterprises (VIBE) ...... 1027 7. H-1B Cap ...... 1011 7. On-Site Investigations by FDNS ...... 1027 8. A and G Visas ...... 1011 8. Copies vs. Originals ...... 1028 9. VWP, EWI, and Parole ...... 1011 9. Considering Government Error or Delay 10. F, I, J, and Others with D/S ...... 1011 and Compelling Circumstances ...... 1028 11. Canadians/Mexicans ...... 1011 T. Employment of Nonimmigrants ...... 1028 12. Impossibility ...... 1011 U. Travel Bans ...... 1029 13. DHS Overstay Vetting Pilot ...... 1011 F. Revocation of Visas ...... 1011 IV. Visa-Exempt Persons G. Disclosure of Records ...... 1013 A. Canada and Bermuda ...... 1029 H. Revalidation/Reissuance of Visas ...... 1013 B. Mexico ...... 1030 I. Returning Petitions to USCIS; Reconsideration ... 1013 C. NAFTA ...... 1030 J. Electronic Filing (E-Filing)...... 1014 1. Visitors for Business ...... 1030 K. E-Notification ...... 1014 2. L Petitions ...... 1031 L. ELIS ...... 1014 3. Professionals (TNs) ...... 1031 M. e-Request...... 1014 4. Procedures ...... 1033 N. Filing Date of Documents ...... 1014 5. TN Dependents ...... 1034

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IV. Visa-Exempt Persons, cont’d 10. Employment ...... 1056 C. NAFTA, cont’d a. First Year ...... 1056 b. On-Campus Employment ...... 1057 6. Domestic Servants ...... 1034 c. Practical Training: CPT and OPT ...... 1058 7. In-State Tuition ...... 1034 d. Graduate Student with Thesis Only 8. Doctrine of Dual Intent Inapplicable to TN 1035 Remaining ...... 1063 9. E Visas ...... 1035 e. Temporary Absence Abroad with Work 10. Strikes and Lockouts ...... 1035 Authorization ...... 1063 D. Groups Exempt from Visa Requirement by f. Extension of Employment Authorization Statute, Treaty, or Compact ...... 1035 for 180 Days ...... 1063 E. Automatic Revalidation; Extension of Visa g. TPS, Employment, and F-1 ...... 1063 Validity ...... 1036 h. Obtaining a Social Security Card ...... 1063 F. Annotating Visas ...... 1036 i. Strikes and Lockouts ...... 1063 11. Out-of-Status Problem ...... 1063 G. (VWP) ...... 1036 12. Change of Status from B-1/B-2 ...... 1064 1. Generally ...... 1036 13. Overstays ...... 1065 2. Disqualification or Suspension of Countries .. 1037 14. Reinstatement...... 1065 3. Disqualification by Status of Certain 15. Extensions of Stay ...... 1065 Individuals ...... 1037 16. Family Members ...... 1066 4. Status ...... 1038 17. Name and Address Registration ...... 1066 5. Documentation ...... 1038 18. School Certification ...... 1066 6. Financial Solvency; Domicile Abroad ...... 1038 19. DHS School Visits ...... 1067 7. Electronic System for Travel Auth. (ESTA) .. 1038 8. Machine Readable & Electronic Passports .... 1038 E. Vocational Students (M Visas) ...... 1067 9. Ineligibility for Change/Extension of Status .. 1039 1. Full Course Defined ...... 1067 10. Ineligibility for VWP/ESTA if Subject to 2. Canadian and Mexican Commuters ...... 1068 INA §222(g) ...... 1039 3. Consular Procedure ...... 1068 11. Adjustment of Status ...... 1039 4. I‑515A Process ...... 1068 12. No Removal Hearing; Waiver of Rights .... 1039 5. Duration ...... 1068 13. Asylum ...... 1040 6. Extension of Stay ...... 1068 14. Bond ...... 1040 7. Employment ...... 1068 15. Challenges to VWP ...... 1040 8. Grace Period ...... 1068 16. Penalty Against Carrier ...... 1041 9. Change of Status from B-1/B-2 ...... 1068 10. Family Members ...... 1069 H. Commonwealth of Northern Mariana Islands 11. Reinstatement...... 1069 and Guam VWP ...... 1041 12. Designated School Officials (DSOs) ...... 1069 V. Visas for Temporary Visitors (B-1, B-2) 13. Differences from F-1 ...... 1069 A. Criteria ...... 1041 F. Exchange Visitors (J Visas) ...... 1070 B. Requirements, Pursuant to 22 CFR §41.31(a): 1042 1. Criteria ...... 1070 C. Time Limitation ...... 1042 2. Issuance by Consulates ...... 1070 D. B-1 / B-2 Engaging in Student Studies ...... 1042 3. Foreign-Residence Reqt. [see ¶ 15] ...... 1070 E. B-1 Visitors for Business ...... 1042 4. I‑515A Compliance ...... 1070 1. Persons Admissible as B-1s ...... 1042 5. Trainee and Internship Programs ...... 1071 2. Basic Eligibility Test ...... 1046 6. College and University Students/Internship 3. Employment Authorization ...... 1047 Programs ...... 1072 4. Social Security Card ...... 1047 7. Secondary School Students ...... 1072 5. Family Members ...... 1047 8. Au Pair Program ...... 1072 F. B-2 Visitors for Pleasure ...... 1047 9. Teacher Program ...... 1072 10. Summer Work Travel Program ...... 1073 G. Incarceration ...... 1049 11. Camp Counselor ...... 1074 VI. Visas for Students and Trainees (F, M, J, H-3) 12. Short Term Scholar and Other Categories . 1074 13. Special Country Programs ...... 1074 A. SEVIS Program ...... 1049 a. South Korean Program ...... 1074 B. Undocumented School Children ...... 1050 b. Australia and New Zealand Program ...... 1074 C. In-State Tuition for College/Universities and 14. B-1 in Lieu of J-1 ...... 1074 Undocumented Status ...... 1050 15. Two-Year Foreign-Residence Reqirement .... 1075 D. Academic Students (F Visas) ...... 1051 16. Waiver of Two-Year Requirement ...... 1075 1. Criteria ...... 1051 a. Procedure ...... 1075 2. Additional Criteria ...... 1052 b. Basis for Waiver ...... 1076 3. Academic Year Defined ...... 1053 (1) Possible Persecution ...... 1076 4. Commuter Students ...... 1054 (2) Exceptional Hardship ...... 1076 5. Consular Procedure ...... 1054 (3) No-objection waiver ...... 1078 6. Medical Insurance ...... 1054 (4) Request by U.S. Fed. Exec. Agency .... 1078 7. Duration of Status (D/S) ...... 1054 (5) Int’l Medical Graduates (IMGs) ...... 1079 8. Transfers ...... 1055 c. Administrative Review ...... 1081 9. Withdrawing from Educational Institution . 1056 d. Judicial Challenge ...... 1081

CHAPTER 5 • NONIMMIGRANT VISAS 995

17. Clarification of Other Issues re Waiver ...... 1082 (5) Independent Contractors ...... 1097 a. Third-Country Residency ...... 1082 (6) Third-Party Placement/Job Shop ...... 1097 b. Two Years is Cumulative Not Continuous ... 1082 (7) Agents Are Not Employers ...... 1098 c. Repayment of Funds ...... 1082 (8) Evidence to Prove Employer-Em- d. Impossibility of Performance; Loss of ployee Relationship in Initial Petition .. 1098 Citizenship ...... 1082 (9) Types of Evidence When Filing an e. EU Countries ...... 1082 Extension Petition ...... 1098 f. Temporary Absence or Second Program .. 1082 (10) Third-Party Worksites ...... 1098 g. Error in Annotation re Foreign Residence j. Portability ...... 1099 Requirement on J Documentation ...... 1082 k. Lawful Status and Termination ...... 1101 h. Applicable Skill List ...... 1083 l. Export Control Act Regulations (EAR); i. Waiver Hotline ...... 1083 Int’l Traffic in Arms Regulations (ITAR) .. 1101 18. General Procedures for Js ...... 1083 m. Strikes and Lockouts ...... 1101 a. Consular Procedures ...... 1083 n. Informed of Labor and Legal Rights ...... 1101 b. Change of category to Other J programs .. 1083 o. E.O. 13788, Buy American and Hire c. Period of stay ...... 1084 American ...... 1101 d. Full Course of Study for Js at Colleges .... 1085 2. Analyses and Definition of Specialty e. Employment ...... 1085 Occupation/Professional Position ...... 1101 (1) Method of Obtaining Employment ... 1085 3. Analysis and Definition of the Beneficiary (2) Students ...... 1086 Employee Qualifications as a Professional 1106 (3) Summer Work Travel ...... 1086 4. The LCA [see Sec. D, infra] ...... 1108 (4) Academic (Practical) Training ...... 1086 5. Other Remedies for H-1B Violations ...... 1108 (5) Employment of Spouse or Child ...... 1086 6. H-1B Procedures ...... 1109 f. Reinstatement of J-1 Status ...... 1086 a. Employer or Agent Files Form I‑129 ...... 1109 g. Estoppel ...... 1086 b. Fees to DHS ...... 1109 19. Spouses and Children (J-2s) ...... 1087 c. Petitions Filed with VSC/CSC ...... 1109 20. Sponsors’ Obligations ...... 1087 d. Extension/Change of Status ...... 1109 21. Exchange Visitor Program Designation, e. Copy of LCA ...... 1109 Suspension, and Revocation Board ...... 1087 f. Effective Date ...... 1110 g. Documentation ...... 1110 G. Trainees (H-3 Visas) ...... 1088 h. Changes in Employment ...... 1110 1. Definition ...... 1088 (1) Successor Company ...... 1110 2. Impermissible Attributes ...... 1088 (2) Minor Changes ...... 1110 3. Necessary Attributes ...... 1088 (3) Change in Employee Location ...... 1111 4. Factors to Consider ...... 1089 (4) New or Amended I‑129 for Other 5. Externs and Nurses ...... 1089 than Geographic Area Changes ...... 1112 6. Distinguishing B-l and J-l from H-3 ...... 1089 (5) Termination of Employment ...... 1112 7. Admission and Extension ...... 1089 (6) Portability ...... 1112 8. Special Education Exchange Program ...... 1090 (7) Short-Term Placement ...... 1112 (8) Multiple Employers ...... 1112 VII. Visas for Business Personnel (9) Extensions of Status ...... 1113 (H, L, E, I, O, P, Q, R) (10) Reduction-in-Force as Termination .. 1113 (11) Denial of Petition ...... 1113 A. Characteristics...... 1090 (12) Revocation ...... 1113 B. H Visas, Generally ...... 1090 7. Admission and Extension for H-1B ...... 1113 C. H-1B Visas ...... 1091 a. Approval Period ...... 1113 1. Criteria ...... 1091 b. Six-Year Maximum ...... 1113 a. Occupation ...... 1091 c. 10-Day Grace Period ...... 1114 b. Coming Temporarily to U.S...... 1091 d. 60-Day Grace Period ...... 1114 c. Effect of Immigrant Petitions ...... 1091 e. Extensions Beyond 6 Years ...... 1114 d. Foreign Residence Unnecessary ...... 1091 f. Extensions of Visa Petition and Extension e. Labor Condition Application (LCA) ...... 1091 of Stay All Filed on I‑129 ...... 1116 f. Salary and Costs to Be Paid by Employer 1091 g. Filing During Pendency of LPR g. Cap of 65,000 H-1B Visas Per Year ...... 1092 Applications ...... 1117 (1) Cap-Exempt ...... 1092 h. Attending Classes ...... 1117 (2) Fast Track and the Cap ...... 1094 i. Family Medical Leave Act ...... 1117 (3) Potential Issues ...... 1094 j. Laws Barring Noncitizens from (4) Procedure to Select H-1B Petitions .. 1095 Employment ...... 1117 h. Nature of Position ...... 1096 8. Family Members ...... 1117 i. Petitioner Must Be U.S. Employer ...... 1096 a. Generally ...... 1117 (1) Definition ...... 1096 b. Employment Authorization ...... 1117 (2) Corporate Existence of Employer ..... 1096 9. Travel and Employment While AOS is (3) Employer-Employee Relationship .... 1096 Pending ...... 1118 (4) Self-Petitioning Owner Is Not an 10. Investigation ...... 1118 Employee ...... 1097 11. Procedures at the Regional Centers ...... 1118

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VII. Visas for Business Personnel, cont’d 12. Whistleblower Provision ...... 1138 13. Out-of-Status Due to Employer’s LCA D. The Labor Condition Application (LCA) ...... 1118 Violations ...... 1139 1. Generally ...... 1118 14. Attorney’s Fees ...... 1139 2. FEIN ...... 1119 15. Attorney Sanctions ...... 1139 3. Required Wage ...... 1119 16. Hearing ...... 1139 a. Wages Defined ...... 1119 17. Review of ALJ Determination and Federal b. Salary v. Hourly Wage Rate ...... 1119 Court Action ...... 1140 c. Part-Time Employment ...... 1119 18. Dependent Employers and Employers Who d. “Wages Paid” Defined as LCA or Actual Willfully Violate Attestation Provisions ...... 1141 Wage; Oral Agreements Don’t Count ...... 1119 e. Nonproductive Work; Benching ...... 1120 E. Fashion Models ...... 1143 f. Deductions from the Wage ...... 1121 1. Standard ...... 1143 g. Releases and Waivers ...... 1122 2. Criteria ...... 1143 h. Side Agreement Violations ...... 1122 3. O-1 Fashion Models ...... 1143 i. Initiation of Employment ...... 1122 F. Defense Dep’t Visas for Cooperative Re- j. Termination of Employer’s Responsibility search, Development, and Co-production ...... 1143 to Pay Wage ...... 1123 4. Prevailing Wage Determination (PWD) ..... 1124 G. Nurses ...... 1144 a. Generally ...... 1124 1. H-1A Nurses ...... 1144 b. Nature of the Job Offered ...... 1125 2. H-1C Nurses ...... 1144 c. Appropriate Wage Based upon Level of 3. H-1B Nurses ...... 1144 Position ...... 1125 4. H-2B Nurses ...... 1145 d. Area of Intended Employment ...... 1126 5. TN Nurses ...... 1145 e. Similarly Employed ...... 1126 6. H-3 Nurses ...... 1145 f. Safe Harbor ...... 1126 7. Healthcare Certificate; Inadmissibility ...... 1145 g. Davis-Bacon / McNamara-O’Hara ...... 1126 h. Employer’s Presentation of Alternative H. Physicians ...... 1147 Survey ...... 1126 1. Generally ...... 1147 i. Employer Challenge to NPWC PWD ...... 1127 2. Documentation ...... 1148 j. 100% of Prevailing Wage ...... 1127 3. When Certifying Exam Not Required ...... 1148 k. Employer Move Affecting PWD 4. Change of Status for J-1 IMGs with INA Determination? ...... 1128 §212(e) Problem ...... 1148 l. Institutions of Higher Education, Non- 5. Extensions; H-1B Cap ...... 1148 profits, Governmental Research Orgs...... 1128 6. IMGs Generally Not Eligible for H-2B, m. Validity Period of Prevailing Wage ...... 1128 H-3, or TN if Coming to Perform Medical n. Calculation of Prevailing Wage by Hour Services ...... 1149 or Year on LCA ...... 1128 7. Physicians Eligible for O Visas ...... 1149 o. Calculation of Prevailing Wage Where 8. Physicians as E-2 Investors ...... 1149 There is a Range ...... 1128 9. Additional IMG Rules ...... 1149 p. Calculation Based upon ETA’s Determination I. Fast-Track H-1B1 Visas ...... 1149 Where LCA Determination Not Supported .. 1128 1. H-1B1 Visas, Generally ...... 1149 q. Guidance for Filing Form 9414 ...... 1128 2. No I‑129 Petition Required ...... 1149 r. Former Procedural Guidance ...... 1128 3. Licensure Not Prerequisite to H-1B1 5. Working Conditions ...... 1129 Admission ...... 1150 6. No Strike or Lockout ...... 1129 4. Labor Condition Application ...... 1150 7. Notice of LCA ...... 1129 5. One-Year Extension, No Six-Year Cap ..... 1150 8. Employer for LCA Purposes ...... 1129 6. Grace Period ...... 1150 9. Procedure ...... 1129 7. Portability ...... 1150 10. LCA Complaints ...... 1132 8. Presumption of Immigrant Status ...... 1150 11. Penalties and Sanctions ...... 1134 9. Change of Status ...... 1150 a. General Penalties ...... 1134 10. Numerical Limit of Visa Reduces H-1B b. Reinstatement ...... 1136 Cap to Extent Used ...... 1150 c. Visa/DHS Expenses ...... 1136 11. Export Control Act Regulations (EAR); d. Travel Time ...... 1136 Int’l Traffic in Arms Regulations (ITAR) ... 1150 e. Loans ...... 1136 f. Back Pay and Front Pay ...... 1137 J. H-2A Visas ...... 1150 g. Criteria Specified in LCA, Such as 1. Generally ...... 1150 Working Conditions ...... 1137 2. Agriculture Defined ...... 1150 h. Employee’s Bad Conduct Not a Defense .. 1137 3. Temporary and Seasonal Defined ...... 1151 i. Downturn in Business/Mitigation by 4. DOL Procedures ...... 1151 Employee Are Not Defenses ...... 1138 a. Prefiling Procedures ...... 1151 j. Attorney’s Incompetence Not a Defense .. 1138 b. Filing ...... 1153 k. Termination ...... 1138 c. Processing of Application ...... 1155 l. Interest on a Backpay Award ...... 1138 d. Amendment to TEC ...... 1156 m. Emotional Distress ...... 1138 e. Post-Acceptance of TEC Requirements ... 1156 n. Sovereign Immunity ...... 1138

CHAPTER 5 • NONIMMIGRANT VISAS 997

f. Labor Certification Determination ...... 1157 s. Enforcement Proceedings ...... 1181 g. Post-Certification ...... 1158 t. H-2Bs in Entertainment Industry ...... 1182 h. Special Procedures ...... 1159 u. Prof. Athletes, Tree Planters & Related i. Successors in Interest ...... 1159 Reforestation Workers, Boilermakers ...... 1183 j. Ombudsman Program ...... 1159 12. H-2B Procedure before DHS ...... 1183 5. DHS Procedures ...... 1159 a. In General ...... 1183 a. Petition Process ...... 1160 b. Designated Countries ...... 1183 b. Porting for E-Verify Employers ...... 1160 c. Nondesignated Countries ...... 1183 c. Substitution of Beneficiaries...... 1160 d. DHS Petition Requirements ...... 1184 d. Designated Countries ...... 1160 e. USCIS Reviews DOL Determination ...... 1184 e. Employer’s Notification/Consent ...... 1161 f. Debarment ...... 1184 f. Replacement and Petition Extensions ...... 1161 g. Naming Beneficiaries ...... 1184 g. Denial or Revocation of Petition ...... 1161 h. Substitution of Beneficiaries ...... 1185 h. Admission and Extension ...... 1161 i. Transportation Home ...... 1185 i. Special Handling ...... 1161 j. Admission and Extension ...... 1185 6. Enforcement of Contractual Obligations under INA §218 ...... 1162 13. H-2B Cap ...... 1185 7. EEOC Enforcement Actions ...... 1162 14. Employer’s Obligations ...... 1186 8. Private Law Suits for Failure to Pay Wage 1162 15. Denial or Revocation of Petition ...... 1186 16. Specially Handled Cases ...... 1186 K. H-2B Visas ...... 1162 17. H-2 to Employment-Based Preference ...... 1186 1. Standards ...... 1162 18. Administrative Penalties ...... 1186 2. Temporary Position / Temporary Need ...... 1163 19. Judicial Review ...... 1187 3. Full-Time Employment ...... 1165 4. Multiple Beneficiaries ...... 1165 L. O Visas ...... 1187 5. Labor Disputes ...... 1165 1. O-1 Visas ...... 1187 6. Successors in Interest ...... 1165 2. O-2 Visas ...... 1188 7. Doctors; Virgin Island Employers ...... 1165 3. O-3 Visas ...... 1188 8. Job Contractors ...... 1165 4. Art Defined ...... 1188 9. Agents; Foreign Recruiters ...... 1166 5. Extraordinary Ability / Extraordinary 10. Itinerant Workers; Mobile Workers ...... 1166 Achievement Defined ...... 1188 6. Event Defined ...... 1189 11. DOL H-2B Procedures ...... 1166 7. Consultations ...... 1190 a. Regulations Enjoined ...... 1167 8. Petition Process ...... 1191 b. 2015 Regulations ...... 1167 9. Admission ...... 1192 c. DOL Appropriations Act 2016 ...... 1167 10. Grace Period ...... 1192 d. Consolidated Appropriations Act, 2017 ... 1168 11. Return Transportation Costs ...... 1192 e. H-2B Registration ...... 1168 12. Denial ...... 1193 f. Prevailing Wage Determination (PWD) ... 1169 13. Revocation ...... 1193 (1) Procedure ...... 1169 14. Strikes and Lockouts ...... 1193 (2) Prevailing Wage Calculation ...... 1169 15. Consular Approvals ...... 1193 (3) Employer Challenge to PWD ...... 1170 M. P Visas ...... 1193 (4) Employer Survey ...... 1170 1. P-1 Athletes and Group Entertainers ...... 1193 (5) Fair Labor Standards Act ...... 1171 2. P-2 Reciprocal Exchange Program ...... 1194 (6) Breach of Contract Claim Under 3. P-3 Culturally Unique Program ...... 1194 State Law ...... 1171 4. Essential Support Personnel ...... 1194 (7) Validity of PWD ...... 1172 5. Spouses and Children (P-4) ...... 1194 (8) DOL May Not Raise PWD After 6. INA §214(b); Dual Intent ...... 1195 Certification...... 1172 7. Return Trip Home ...... 1195 (9) Professional Athletes ...... 1172 8. Petition Process ...... 1195 (10) Retention of Records ...... 1172 g. Requirements for Position Are Those 9. Consultations ...... 1197 Normally Required ...... 1172 10. Admission; Extension ...... 1198 h. SWA and Job Order Requirements and 11. Denial ...... 1198 Recruitment; ...... 1172 12. Revocation ...... 1198 i. TEC / Form 9142B Requirements ...... 1174 13. Consular Processing ...... 1198 j. Recruitment ...... 1177 14. Strikes and Lockouts ...... 1199 k. Emergency Waivers ...... 1180 N. Intracompany Transferees (L Visas) ...... 1199 l. Decision on TEC ...... 1180 1. Definition ...... 1199 m. Retention of Documents ...... 1180 2. One-Year Employment Requirement ...... 1200 n. Request for Determination Based on 3. “Employee” ...... 1200 Nonavailability of U.S. Workers ...... 1180 4. Temporariness ...... 1201 o. Extension of TEC Period ...... 1181 5. Qualifying Organizational Relationship ..... 1202 p. Audits ...... 1181 6. Rendering Services to Same Employer ...... 1204 q. Debarment ...... 1181 r. Administrative Review ...... 1181

998 [Table of Contents, Chapter 5] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

VII. Visas for Business Personnel, cont’d C. V Visas (Spouse or Child of LPR) ...... 1252 N. Intracompany Transferees (L Visas), cont’d 1. Eligibility ...... 1252 2. Pending Defined ...... 1252 7. Must Work in Managerial, Executive (L-1A), 3. V-3 Unmarried Children ...... 1252 or Specialized Knowledge Capacity (L-1B) .. 1204 4. Aging-Out Cases ...... 1252 8. Specialized Knowledge / L-1B ...... 1207 5. Inadmissibility Grounds ...... 1253 9. Nature/Size of Company ...... 1211 6. Employment ...... 1253 10. New Office ...... 1211 7. Travel ...... 1253 11. Procedural Aspects ...... 1211 8. Termination of Status ...... 1253 O. Treaty Traders/Investors (E-1 / E-2 Visas) ..... 1216 9. Procedure ...... 1253 1. Definition ...... 1216 2. General considerations ...... 1216 X. Transit, Crewmen, AND NATO/G-4 Family 3. Nationality of E ...... 1217 (C, D, N) 4. Time of Admission ...... 1218 A. C Visas (Transits) and TWOV...... 1254 5. Grace Periods ...... 1218 B. D Visas (Crewmen) ...... 1255 6. E-1 Visas ...... 1218 C. N Visas ...... 1257 7. E-2 Visas ...... 1220 8. Employees ...... 1223 9. Procedures ...... 1224 XI. Law Enforcement Visas (S, T, U) 10. Families of E Visa Holders ...... 1225 A. S Visas (Witnesses) ...... 1257 11. Special Commonwealth of the Northern Mariana Islands (CNMI) E-2 Provision ..... 1226 B. T Visas (Trafficking Victims) ...... 1259 12. Employment Discrimination and Wrongful 1. Generally ...... 1259 Termination ...... 1226 2. Remaining in U.S...... 1263 13. E Treaties and Expropriation ...... 1226 3. Employment Authorization, Other Benefits .. 1263 4. Removal after Grant of T Status ...... 1263 P. E-3 Visas (Australian Special Occupation) ..... 1227 5. 5,000 Cap ...... 1263 Q. Q Visas (Cultural Exchange Programs) ...... 1228 6. Family Members ...... 1263 7. Admission/Duration of T Status ...... 1265 R. Religious Workers (R Visas) ...... 1230 8. Revocation of Status ...... 1265 S. I Visas for Representatives of the Media ...... 1232 9. Change of Status ...... 1265 10. Adjustment of Status ...... 1265 T. CNMI Transitional Workers ...... 1234 11. Prohibition Against Petitioning for Traffickers 1268 12. DHS Assistance to Other Agencies ...... 1268 VIII. Diplomatic & International Organization 13. Agency Assistance to Persons Granted Aliens (A, G, C-2/C-3) T Status ...... 1268 A. Diplomatic/Official Visas Distinguished ...... 1235 14. Confidentiality Provision ...... 1268 B. A Visas ...... 1236 15. Contact for Pending Cases ...... 1268 C. G Visas ...... 1239 C. U Visas (Crime Victims) ...... 1268 D. NATO ...... 1241 1. Eligibility ...... 1268 E. U.N. Transits (C-2 Visa) ...... 1242 2. Procedure; Application Process ...... 1270 F. Foreign Government Transits (C-3 Visa) ...... 1242 3. Cap on U-1 Status ...... 1271 4. Approval of the Petition ...... 1272 IX. Family-Related Visas for Fiancées, Spouses, 5. Employment Authorization ...... 1272 & Children of U.S. Citizens or LPRs (K, V) 6. Admission and Duration of Status ...... 1272 7. Visa Processing Abroad ...... 1272 A. K-1 Visas (Fiancé(e)s) ...... 1242 8. Death of Principal U ...... 1272 1. Criteria ...... 1242 9. Family Members ...... 1272\ 2. Procedure ...... 1243 10. Nondisclosure and Prohibited Use ...... 1273 3. Procedure for Adjustment of Status ...... 1248 11. Grounds of Inadmissibility ...... 1273 4. Administrative and Judicial Review ...... 1249 12. Revocation of Petition ...... 1274 B. K-3 Visas (Spouses of U.S. Citizens)...... 1249 13. Removal Proceedings ...... 1274 1. Eligibility ...... 1250 14. Change of Status/Extension of Status ...... 1275 2. Children of K-3 ...... 1250 15. AOS Generally ...... 1275 3. Inadmissibility Waived ...... 1250 16. Judicial Review ...... 1277 4. Effective Date ...... 1250 17. Prohibition Against Petitioning for Abusers .. 1277 5. Procedures ...... 1250 18. Resources ...... 1277

CHAPTER 6 PERMANENT RESIDENT STATUS

I. General 3. Children Born In- or Out-of-Wedlock ...... 1293 A. Definition ...... 1283 4. Legitimated Children ...... 1294 B. Intent to Keep U.S. Permanent Residence...... 1283 5. Adopted Children ...... 1295 C. What Lawful Permanent Residence Does Not a. Generally ...... 1296 Provide ...... 1283 b. Nonorphan Adoptions, Non–Hague D. Green Card ...... 1283 Convention Adoptions ...... 1296 E. Process for Obtaining Lawful Permanent Res- c. Unavailabilty of Immigration Benefits for idence ...... 1283 Biological Parents ...... 1299 d. Biological Siblings ...... 1299 II. Immediate Relatives ...... 1285 e. Conformity to County’s Law of Adoption. .. 1299 III. Widow(er)s ...... 1285 f. Simple vs. Full Adoptions ...... 1299 g. Customary Adoptions ...... 1299 A. In General ...... 1285 h. Procedural Issues Regarding Adoption .... 1300 B. Procedural Issues ...... 1286 i. Hague Convention ...... 1300 IV. VAWA Petitioners 6. Orphans ...... 1300 (Battered Spouses, Children, or Parents) a. Custody/Residence ...... 1300 A. VAWA Self-Petitioner Defined ...... 1286 b. For orphans ...... 1300 B. Eligibility ...... 1286 c. Criteria ...... 1300 C. Aged-Out Children ...... 1287 d. Definitions ...... 1301 D. Death of VAWA Petitioner ...... 1288 e. Child Born Out-of-Wedlock ...... 1302 f. Step-Parents ...... 1302 E. Self-Petitioning Abused Parent ...... 1288 g. Number of Orphans for Adoption ...... 1302 F. Good Moral Character (GMC) ...... 1288 h. Home Studies ...... 1302 G. Employment Authorization/Deferred Action .. 1289 i. Primary Provider ...... 1303 H. Prohibition on Petitioning for an Abuser ...... 1289 j. Who Must See the Child Prior to Adoption . 1303 I. Evidence in VAWA Cases ...... 1289 k. Child-Buying ...... 1303 J. Confidentiality of Information ...... 1289 l. Homosexual Adoptions ...... 1303 K. Three- and Ten-Year Bar ...... 1290 m. Biological Parents Get No Immigration L. Other Grounds of Inadmissibility and Waivers ... 1290 Benefits ...... 1303 M. INA §204(c) Bar Applies ...... 1290 n. Procedures for Non-Hague Countries ...... 1303 N. AOS and EWI ...... 1290 7. Hague Convention Adoptions for Orphan O. VWP and VAWA ...... 1290 and Nonorphan Adoptions ...... 1304 P. K-1 Bar and VAWA ...... 1290 8. Citizenship Immediately Available and Q. VAWA Revocations ...... 1290 Other Benefits ...... 1310 R. Initiating Removal Proceedings ...... 1290 B. Parents ...... 1310 S. Motions to Reopen (MTR) Proceedings ...... 1291 C. Brothers and Sisters ...... 1310 T. Naturalization and VAWA ...... 1291 D. Spouses ...... 1311 U. Administrative and Judicial Review ...... 1291 1. Immigration Marriage Fraud Amendments Act of 1986 (IMFA) ...... 1311 V. Spouse, Parent, or Child of Member of a. Conditional Residence Status ...... 1311 Armed Forces Who Died in Combat b. Removal of Conditions by Joint Petition .. 1311 A. Spouse, Parent or Child of Deceased USC c. Waiver of Joint-Filing Requirement ...... 1312 Service Member ...... 1291 d. Timing of I‑751; Effect on Status ...... 1316 B. Spouse, Parent, or Child of Posthumous USC e. Spouses, spouses’ children, K fiancé(e)s .... 1317 Service Member ...... 1291 f. Notification ...... 1317 C. Adjustment Applications Survive Death of g. Physical Presence For Filing Not USC Service Member Spouse ...... 1291 Required ...... 1317 D. Definitions ...... 1292 h. Denial of Adjustment ...... 1317 i. Termination of Conditional Residence ..... 1317 VI. Definitions of Family Members j. Removal Proceedings for Terminated A. Child ...... 1292 Conditional Residents ...... 1318 1. Generally ...... 1292 k. Final Order of Removal and I‑751 ...... 1319 2. Step-Children ...... 1293 l. Administrative and Judicial Review ...... 1319 1279 1280 [Table of Contents, Chapter 6] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

VI. Definitions of Family Members, cont’d D. Priority Dates ...... 1340 D. Spouses, cont’d 1. In general ...... 1340 1. IMFA, cont’d 2. Family-Preference Petitions ...... 1341 3. Conversion of Family-Based Petitions and m. Marriage in Removal Proceedings ...... 1320 Retention of Priority Dates ...... 1341 n. Petition for Subsequent Marriage ...... 1323 4. Priority Dates for Children Not Eligible for o. Naturalization, Petitioning for Relatives, CSPA in Regard to All Petitions ...... 1342 and Other Benefits ...... 1323 5. Battered Spouses/Children ...... 1342 2. Validity of the Marriage ...... 1324 6. Western Hem. Priority Dates; Silva Letters ... 1343 3. Transgender Marriages ...... 1324 7. Employment-Based Priority Dates ...... 1343 4. Same-Sex Couples ...... 1325 8. Derivative Beneficiaries ...... 1343 5. Voidable Marriages Recognized ...... 1326 9. “Aged-Out” Children ...... 1344 6. Common Law Marriages ...... 1326 a. Effective Date ...... 1344 7. Religious Marriages ...... 1326 b. NIVs/NACARA/HRIFA/Family Unity/SIJs 1344 8. Marriage and Public Policy ...... 1326 c. Cancellation of Removal ...... 1344 9. Prior Divorce Must Be Valid ...... 1326 d. Immediate-Relative Children ...... 1344 a. In General ...... 1326 e. Married Sons and Daughters ...... 1344 b. Choice of Law ...... 1327 f. Naturalization of Parent ...... 1344 c. Applicability of State Law...... 1327 g. Family, Employment, and Diversity d. Final Decree ...... 1327 Petitions for Derivative Children ...... 1345 e. Annulments ...... 1327 h. How to Calculate the Age ...... 1345 f. Tribal Divorces ...... 1327 i. Other Avenues for Age-Outs ...... 1349 g. Religious Divorces ...... 1327 10. Loss of Priority ...... 1350 10. Criminal Proceedings ...... 1327 11. Preservation of Priority Date Where 11. Proxy Marriages ...... 1327 Petition Lost ...... 1351 12. Viability of the Marriage ...... 1328 E. Presumption Against Admissibility ...... 1351 a. Separation ...... 1328 F. Oversubscribed Countries ...... 1351 b. Death of Petitioner or Principal Beneficiary . 1328 13. Petitioner Under 18 ...... 1330 VIII. Diversity Immigrants 14. Battered Spouses ...... 1330 A. Number Available ...... 1351 15. Removal Proceedings and Review of I-1301330 B. Regions ...... 1351 16. Divorce Prior to Approval May Not Defeat C. Eligibility ...... 1351 Adjustment of Status ...... 1330 17. Sham Marriages ...... 1330 D. Procedure ...... 1352 18. Sham Divorces ...... 1332 E. Applicants Must Be Selected Randomly ...... 1352 19. Relief from Fraudulent Marriages ...... 1333 F. Visa Must be Issued within DV Fiscal Year ... 1353 20. Subsequent IV Petitions ...... 1333 IX. Miscellaneous Adjustment Acts a. Attempt Sufficient ...... 1334 A. NACARA ...... 1353 b. Evidentiary Basis ...... 1334 c. Burden of Proof ...... 1335 B. HRIFA ...... 1354 d. Same Petitioner Refiling ...... 1335 C. Vietnam, Cambodia and Laos Adjustment Act .. 1355 e. Waivers ...... 1335 D. USA PATRIOT Act...... 1355 f. Effective Date ...... 1335 E. Help HAITI Act of 2010 ...... 1355 g. Government Cooperation ...... 1335 X. Petition Process h. Constitutional Challenges ...... 1335 i. INA §212(a)(6)(C)(i) in Lieu of §204(c) ..... 1336 A. Persons Precluded from Petitioning ...... 1355 j. Judicial Review ...... 1336 B. Immediate Relatives; 1st to 4th Family Preferences ...... 1356 21. Potential Criminal Violations ...... 1336 C. VAWA Petitioners (Battered Spouses or a. Visa Fraud ...... 1336 Children) ...... 1356 b. False Statement ...... 1336 c. Conspiracy ...... 1336 D. Widow(er)s ...... 1356 d. Marriage Fraud ...... 1336 E. Family of Member of Armed Forces Killed in 22. Civil Actions ...... 1337 Combat ...... 1356 23. Marriages Abroad ...... 1337 F. Death of Petitioner ...... 1357 24. Marriage in Detention ...... 1337 1. Criteria Under Current Law ...... 1357 2. Qualifying Relative ...... 1357 VII. Numerical Limitation (Preference) 3. Adjustment of Status ...... 1357 Immigrants 4. Conditional Residency ...... 1358 A. Maximum Divided into Categories ...... 1337 5. Motion to Reopen ...... 1358 B. Preference System ...... 1338 6. Nonimmigrant Status...... 1358 C. Foreign State Chargeability ...... 1339 7. Prior Case Law ...... 1358 1. General Rule ...... 1339 G. Venue for Filing ...... 1358 2. Exceptions (Cross-Chargeability) ...... 1339 H. Procedures; Proof ...... 1359 3. Cross-Chargeability Does Not Rest on 1. Burden of Proof is on Petitioner ...... 1359 Principal Beneficiary ...... 1339 2. Withdrawal of Petition ...... 1359 4. Accompanying or Following to Join ...... 1339 3. Copies vs. Originals ...... 1359

CHAPTER 6 • PERMANENT RESIDENT STATUS 1281

4. DHS Obtaining Records from its Own XII. Adjustment of Status (AOS) Files or Other Agencies ...... 1360 A. Requirements Under Regular AOS Procedures .. 1373 5. Unavailability of Records...... 1360 1. Inspected and Admitted or Paroled ...... 1373 6. USCIS Forms Have Force of Law ...... 1360 2. Lawfully in U.S...... 1375 7. Birth Certificates ...... 1360 3. Availability of Visa Number ...... 1375 8. Marriage Certificate ...... 1361 4. “Properly Filed” ...... 1376 9. Proof of U.S. Citizenship ...... 1361 5. Medical Exam ...... 1377 10. Evidence in Cases Involving Battery and 6. Eligible and Otherwise Admissible ...... 1377 Extreme Cruelty ...... 1361 7. Deportability Generally Does Not Bar AOS . 1385 11. Fees ...... 1361 8. Security Check; Name Check ...... 1385 12. Refunds ...... 1361 9. Battered Spouse and Children ...... 1385 13. Expedited Processing of Cases ...... 1361 10. Discretion ...... 1385 14. Beneficiary Must be Eligible at Time 11. Abandonment Due to Unauthorized Petition Is Filed ...... 1361 Departure ...... 1386 15. Adam Walsh Check on Petitioner ...... 1362 12. Rescheduling Adjustment Interview and 16. Disclosure of Petitioner’s Criminal History Denial for Abandonment ...... 1386 to Beneficiary...... 1362 13. Transferring Adjustment to New Family- 17. Pending Investigation ...... 1362 or Employment-Based IV Petition ...... 1386 18. Request for Evidence (RFE) or Notice of 14. Status at Time of Filing ...... 1387 Intent to Deny (NOID) ...... 1362 15. AOS is Not an Entry ...... 1387 19. Inadmissibility ...... 1362 16. AOS in Removal Proceedings ...... 1388 20. Confidential Evidence ...... 1362 21. Government Error or Delay and B. Special Adjustment Provision: §245(i) ...... 1390 Compelling Circumstances ...... 1363 1. Generally ...... 1390 22. InfoPass ...... 1363 2. §245(i) Only Waives §§245(a) & (c) ...... 1391 23. Signatures ...... 1363 3. §245(k) Does Not Bar AOS under §245(i) .... 1391 24. Heightened Procedures ...... 1363 4. Other Sections Require Waivers Before I. What Does Approval Mean? ...... 1364 Use of §245(i) ...... 1391 J. Denial of Petition ...... 1364 5. §245(i) Does Not Waive Inadmissibility.... 1391 K. Revocation of Approved Petition ...... 1365 6. Proving Physical Presence on 12/21/2000 ... 1392 1. Basis for Revocation ...... 1365 7. Grandfathered Petitions ...... 1392 2. Automatic Revocation by DHS ...... 1366 a. Generally ...... 1392 3. Automatic Revocation Retroactive to Date b. Timely Filed ...... 1393 of Approval ...... 1366 c. Physical Presence ...... 1393 4. Changes to Preference Category ...... 1366 d. Approvable When Filed ...... 1393 e. Aged-Out Children, Divorced Spouses, L. Termination, Return or Revocation by DOS ... 1367 and After-Acquired Family ...... 1396 1. Revocation by Secretary of State ...... 1367 f. Unlawful Presence ...... 1396 2. Termination of Process at Consulate ...... 1367 8. §245(i) Adjustment in Proceedings ...... 1396 3. Return of Petition by Consular Officer to 9. Enforcement Issues ...... 1397 USCIS ...... 1367 10. Reinstatement of Removal ...... 1397 M. Judicial Review of Petition; IV Revocation ... 1367 C. Special Exemption for Employment-Based AOS 1398 XI. Consular Processing 1. Generally ...... 1398 A. General Procedure ...... 1369 2. Otherwise Eligible ...... 1400 1. Residence Rule ...... 1369 3. Fees ...... 1400 2. Exception to Residence Rule ...... 1369 4. §245(k) Does Not Bar AOS under §245(i) .. 1400 B. Application at Consular Post ...... 1370 5. Religious Workers ...... 1400 1. Three- and Ten-Year Bars ...... 1370 2. Burden of Proof ...... 1370 D. T & U Adjustment of Status ...... 1400 3. Documentary Requirements Generally ...... 1370 E. Northern Mariana Islands (CNMI) AOS ...... 1400 4. Police Certificates ...... 1370 F. Jurisdiction ...... 1400 5. Affidavit of Support (I‑864) ...... 1370 G. Advance Parole ...... 1401 6. Noncustodial Parent’s Permission ...... 1370 1. Generally ...... 1401 7. Tax Return ...... 1371 2. Exceptions ...... 1401 8. Medical Exam ...... 1371 3. Granted by Regional Director ...... 1402 9. Name Check Procedure ...... 1371 4. Advance Parole and Employment Auth. .... 1402 10. Homeland Security Act Procedures...... 1371 5. Others Eligible for Advance Parole ...... 1402 11. From AOS to IV and I-824 ...... 1371 6. Persons Outside the U.S...... 1402 12. Consul’s Termination of Petition for Inactivity 1371 7. Status Upon Return ...... 1402 13. Consul’s Return of Petition to USCIS ...... 1372 8. Arriving Aliens and AOS ...... 1403 C. Denials at Consular Posts ...... 1372 9. Advance Parole and 3/10 Year Bar ...... 1403 D. Waivers May Be Available ...... 1373 10. Advance Parole and Suspension/ E. Third-Country Processing ...... 1373 Cancellation of Removal ...... 1403 F. Must Enter U.S. Within 6 Mos. of Issuance of IV 1373 11. Effect on Family’s Status ...... 1403 12. Revocation of Advance Parole ...... 1403

1282 [Table of Contents, Chapter 6] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

XII. Adjustment of Status (AOS), cont’d I. Social Security Payments ...... 1415 1. General Eligibility ...... 1415 H. Parole-in-Place ...... 1404 2. SSA Guide ...... 1416 I. Employment Authorization ...... 1404 3. Deported Aliens May Lose Benefits ...... 1416 J. Denial of Adjustment ...... 1404 4. NIVs May Be Excluded from Social K. Rescission of Adjustment ...... 1404 Security Coverage...... 1416 L. Removal Proceedings After Adjustment or 5. Eligibility of Children ...... 1416 While Adjustment is Pending ...... 1406 J. Social Security Cards ...... 1416 XIII. Other Matters Concerning LPRs 1. SSA General Guidelines ...... 1416 A. Travel and Reentry Document ...... 1406 2. SSA Guidelines for Nonimmigrants ...... 1417 B. Permanent Resident Card (Green Card), I‑551 ... 1407 3. SSA Guidelines for Asylees and Refugees 1417 C. Verifying Residency ...... 1409 4. Cards for Nonwork Purposes ...... 1417 D. Second Residency ...... 1410 5. Procedures ...... 1417 6. ITINs ...... 1418 E. Abandonment of Residency ...... 1410 7. Government Request for SSN ...... 1418 1. Surrender of Green Card and/or Form 8. No-Match and Mismatched SSNs ...... 1418 I‑407 Not Dispositive ...... 1410 9. Receiving Credit for Social Security 2. Absence of More Than One Year ...... 1410 Payments ...... 1418 3. Absence of Less than One Year ...... 1411 10. Social Security Fraud ...... 1419 4. BIA / DOS criteria ...... 1411 5. Temporary Visit Abroad ...... 1411 K. Public Benefits...... 1419 6. Continuous Uninterrupted Intent ...... 1411 1. Personal Responsibility and Work 7. Burden of Proof ...... 1412 Opportunity Reconciliation Act of 1996 .... 1419 8. Abandonment by Parent Imputed to 2. Federal Means-Tested Public Benefits ...... 1419 Accompanying Child ...... 1412 a. Humanitarian Exemption ...... 1420 9. Fleuti Doctrine ...... 1412 b. Citizenship Verification ...... 1420 10. Abandonment for CR as well as LPRs ...... 1412 c. Losing Benefits Due to Leaving U.S. or 11. Procedures for Return to U.S. if Abroad Deportation ...... 1420 and I‑551 Expires or is Lost or Stolen ...... 1412 3. Cuban-Haitian Entrants ...... 1420 F. Termination of Residency in Removal 4. Federal Financial Aid ...... 1421 Proceedings ...... 1412 5. HUD Programs ...... 1421 G. Children of LPRs Born Abroad ...... 1412 L. Driver’s Licenses & REAL ID Act ...... 1421 H. Tax Information ...... 1413 1. Driver’s Licenses; ID Documents ...... 1421 1. General Requirement ...... 1413 2. State Prohibitions ...... 1421 2. Estate Tax ...... 1414 3. Expatriation Tax ...... 1414 M. Health Insurance ...... 1421 4. Withholding of Tax on Nonresidents ...... 1415 1. In General ...... 1421 5. Earned Income Credit and Undocumented 2. Coverage ...... 1422 Persons Filing Returns ...... 1415 3. Use of Information ...... 1422 6. The Tax Cuts and Jobs Act (12/22/2017)...... 1415

CHAPTER 7 EMPLOYMENT-BASED IMMIGRATION AND LABOR CERTIFICATION

I. Introduction ...... 1427 D. Professionals and Skilled Workers vs. Other Workers ...... 1448 II. First Preference (EB-1): Priority Workers E. Definition of Professional ...... 1449 A. Generally ...... 1427 B. Persons of Extraordinary Ability ...... 1427 V. Fourth Preference (EB-4): Special Immigrants C. Outstanding Professors and Researchers ...... 1431 A. Generally ...... 1451 1. General Requirements ...... 1431 B. Returning Residents ...... 1451 2. Government Agencies ...... 1432 C. Persons Reacquiring U.S. Citizenship ...... 1451 3. Evidence ...... 1432 D. Religious Workers ...... 1451 4. Definition of Academic Field ...... 1432 1. Requirements ...... 1451 5. Weight of the Evidence ...... 1432 2. Dependents ...... 1453 6. Ability to Pay ...... 1433 3. Definitions ...... 1453 7. No LC Required ...... 1433 4. Change in Location ...... 1454 8. Cases Supporting Outstanding Professors 5. Procedure and Evidence ...... 1454 and Researchers ...... 1433 6. Limitation of 5,000 ...... 1456 D. Multinational Executives and Managers ...... 1433 E. Employees of U.S. Government, or of Ameri- can Institute in Taiwan, for 15 Years ...... 1456 III. Second Preference (EB-2): F. Panama Canal Treaty Employees and their Members of Professions Holding Advanced Spouses and Children ...... 1456 Degrees or Aliens of Exceptional Ability G. International Medical Graduates (IMGs) ...... 1456 A. Generally ...... 1436 H. G-4s ...... 1456 B. Eligibility ...... 1436 I. Special Immigrant Juveniles (Court Dependents) 1457 C. Labor Certification (LC), National Interest 1. Generally ...... 1457 Waiver (NIW), or Schedule A ...... 1437 2. Jurisdiction ...... 1459 D. Definition of Advanced Degree ...... 1437 3. Eligibility ...... 1461 E. Definition of Exceptional Ability ...... 1440 4. Procedure ...... 1462 F. Substantial Prospective Benefit ...... 1440 5. Revocation ...... 1463 G. National Interest Waiver (NIW) ...... 1440 6. Judicial/Administrative Review ...... 1463 1. Employer or Applicant Can Sign Petition .. 1440 7. Adjustment of Status ...... 1463 2. Waiver Available Only to EB-2s ...... 1440 8. Parent Receives No Immigration Benefit ... 1464 3. Evidentiary Criteria under Dhanasar ...... 1441 9. Parole Admission as SIJ Qualifies as 4. Pre-NYSDOT Evidentiary Factors ...... 1441 Admission for Cancellation ...... 1464 5. Approved Cases Post-NYSDOT ...... 1442 10. Prosecutorial Discretion ...... 1464 6. Denied Cases Post-NYSDOT ...... 1444 11. Services by Federal Government ...... 1464 7. Approved Cases Post-Dhanasar ...... 1444 J. U.S. Service Members Who Honorably Served 8. Denied Cases Post-Dhanasar ...... 1445 on Active Duty for 12 Years ...... 1464 9. Change in Employer ...... 1446 K. Victims of Sept. 11, 2001 Terrorist Attack ..... 1464 10. Judicial Review ...... 1446 L. NATO Civilian Employees ...... 1464 H. International Medical Graduates (IMGs) ...... 1446 M. BBG Broadcasters ...... 1464 1. Generally ...... 1446 N. Translators with U.S. Armed Forces...... 1465 2. Exceptions ...... 1446 O. Iraqis Providing Faithful and Valuable Ser- 3. Physician National Interest Waivers (PNIW) 1446 vice to U.S...... 1465 4. USCIS Acceptance of AOS Application .... 1447 P. Afghan Allies Protection Act of 2009 ...... 1466 5. Labor Certifications for Physicians ...... 1447 I. Nurses...... 1448 VI. Fifth Preference (EB-5): Employment Creation (Investors) IV. Third Preference (EB-3): A. Basic Program ...... 1467 Professionals, Skilled and Other Workers B. Must Invest in a New Commercial Enterprise 1468 A. Generally ...... 1448 B. Eligibility ...... 1448 C. Investment (Amount) ...... 1469 C. Additional Requirements ...... 1448 D. Source of Funds ...... 1471 1423 1424 [Table of Contents, Chapter 7] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

VI. EB-5 Investors, cont’d R. Securities Law Issues ...... 1491 1. Rule 506, Regulation D ...... 1492 E. Investment (At Risk) ...... 1471 2. Rule 10b-5 Anti-Fraud Provision ...... 1492 1. Promissory Notes ...... 1471 3. Activities by Third Parties ...... 1494 2. Trusts ...... 1472 4. General Dissemination to Third Parties ..... 1495 3. Guaranteed Interest Pmts. and Returns ...... 1472 5. NASD and FINRA Violations ...... 1495 4. Redemption Agreements ...... 1472 6. State Registration ...... 1495 5. Secured Loans ...... 1472 S. Litigation Concerning the Investor Program ... 1495 6. Purchasing a Share of an Existing Business ... 1473 1. Standing ...... 1495 7. Payment of Partnership Expenses ...... 1473 2. Failure to Approve I‑526...... 1495 8. Reserves ...... 1473 3. Failure to Approve I‑829...... 1496 9. At Risk Reqt. After Job Creation is Satisfied . 1473 4. SEC Enforcement Actions ...... 1496 10. Redeployment of Funds ...... 1473 5. Criminal Proceedings ...... 1496 11. Challenges to Plans ...... 1474 6. Qui Tam Actions ...... 1496 F. Targeted Employment Area (TEA) ...... 1475 7. Legal Malpractice ...... 1496 1. In General ...... 1475 8. Fraud Claims Brought by Investors ...... 1496 2. Rural Area Defined ...... 1475 9. Whistleblowing ...... 1497 3. High Unemployment Area Defined ...... 1475 T. Special Legislation for Certain Investors with 4. Multiple TEAs in One Investment ...... 1476 CR Status or Approved I‑526 Petitions ...... 1497 G. Multiple Investors; Partnerships ...... 1476 H. Employment Creation ...... 1476 VII. Common Issues in Employment-Based 1. Comprehensive Business Plan ...... 1476 Immigration 2. Job Creation Period Measured ...... 1476 3. Employee Defined ...... 1477 A. Petition Process ...... 1498 4. Full-Time/Permanent Employment ...... 1477 1. In general ...... 1498 5. Troubled Business Employment ...... 1477 2. Derivatives ...... 1498 6. Indirect Job Creation in Regional Centers .. 1478 3. Post-Submission Changes to a Petition ...... 1498 7. Allocation of Jobs ...... 1478 4. USCIS Does Not Preadjudicate Cases ...... 1499 5. I‑140 Filed Within 180 Days of LC Validity . 1499 I. Regional Center Program ...... 1479 6. No Substitution of Beneficiary ...... 1499 1. Generally ...... 1479 7. Approval ...... 1499 2. Filing I‑924 ...... 1479 8. Successor in Interest ...... 1500 3. Investment Amount ...... 1482 9. Adjustment of Status ...... 1500 4. Nonprofit Investment ...... 1482 10. Portability; Subsequent Employer AOS ..... 1501 5. Amendments to I‑924 ...... 1482 11. Employment Authorization in Compelling 6. I‑924A and Updated Information ...... 1483 Circumstances ...... 1504 7. Sale of Regional Center ...... 1483 12. Professional Athletes ...... 1504 8. Termination of Regional Centers ...... 1483 13. Embargoed Countries ...... 1504 9. Audit of Regional Centers ...... 1484 14. Expedited Processing of Cases ...... 1504 10. Listing ...... 1484 15. Adjustment of Status ...... 1504 J. Petition (I‑526) and Evidence Required ...... 1484 16. Revocation of Petitions ...... 1505 1. Regarding the Enterprise ...... 1484 17. State Department Revocation ...... 1506 2. Regarding the Investment...... 1484 18. Withdrawn Petition Prior to Decision ...... 1506 3. Regarding Obtaining the Capital Through 19. Consulate’s Return of Petition to USCIS ...... 1506 Lawful Means...... 1484 20. Administrative Review ...... 1506 4. Regarding Creation of 10 Jobs ...... 1485 21. Judicial Review of Revocation...... 1507 5. Petitioner Will Engage in Day-to-Day Business or Policy Formulation...... 1485 B. USCIS Review of DOL Certification ...... 1507 6. Targeted Employment Area (if applicable) 1485 1. DOL Procedures ...... 1507 7. Regional Center Information ...... 1485 2. Typical Areas of Inquiry by USCIS ...... 1507 8. Expedite Requests ...... 1486 3. Issuance of RFE or NOID ...... 1510 9. Material Change ...... 1486 4. Originals vs. Copies ...... 1510 10. Children and Age-Outs ...... 1486 5. USCIS Auth. to Reconsider DOL Decision .. 1511 11. Traveling to U.S. to Monitor/Investigate 6. Judicial Review ...... 1511 Investment ...... 1486 C. Work Authorization ...... 1511 12. CR Status through AOS or IV ...... 1486 K. Investor Must Petition for Removal of Condi- VIII. Labor Certification, Generally tions on CR Status (I‑829) ...... 1486 A. Requirements ...... 1511 L. Deference Policy ...... 1488 B. Method of Certification ...... 1512 M. Spouse and Children ...... 1490 1. PERM, Reduction in Recruitment (RIR), N. Termination of Status ...... 1490 and Traditional Recruitment ...... 1512 O. Removal Proceedings ...... 1490 2. Individual Job Offer ...... 1512 P. Naturalization and Petitioning for Others ...... 1491 3. Precertification (Schedule A) ...... 1512 Q. Ethical Issues for DHS Officers ...... 1491 4. Schedule B Occupation ...... 1512

CHAPTER 7 • EMPLOYMENT-BASED IMMIGRATION AND LABOR CERTIFICATION 1425

5. Optional Special Recruitment for College 5. Notice and Posting ...... 1543 and University Teachers ...... 1513 a. Notice to Bargaining Representative ...... 1543 6. Professional Athletes ...... 1513 b. Posting Notice of Filing to Employees ..... 1543 (1) Time Period ...... 1543 IX. Labor Certification under PERM (2) Location of NOF ...... 1543 A. Overview ...... 1513 (3) Requirements of 656.17(f) ...... 1544 (4) Content of NOF ...... 1544 B. Basic Procedure ...... 1514 (5) Posting the Wage/Rate of Pay ...... 1544 1. Employer Must Register ...... 1514 (6) Electronic In-House Notice ...... 1545 2. Employer Must File ETA-9089 ...... 1515 (7) Omission of Employer Name in NOF ... 1545 a. Multiple Filings Prohibited ...... 1515 (8) Failure to State Purpose of Posting .... 1545 b. Employer Defined ...... 1515 (9) Failure to Designate Place of Posting .. 1545 c. Typoos May Be Fatal; No Corrections ..... 1516 c. Posting Notice for Roving Employees ..... 1546 (1) In General ...... 1516 d. NOF Applies to Most Types of LCs ...... 1546 (2) Fundamental Fairness Exception ...... 1517 e. NOF Under 8 CFR §656.10(d) Not (3) Form 9089 or SWA Deficient ...... 1517 Required for Supervised Release ...... 1546 (4) Remands ...... 1519 6. Recruitment Report ...... 1546 (5) Fundamental Fairness in Audit ...... 1519 (6) Fundamental Fairness in Supervised 7. Request for Audit ...... 1547 Recruitment ...... 1519 a. Maintain an Audit File ...... 1548 (7) Due Process Notice ...... 1520 b. Response Time to Audit Request ...... 1548 (8) Failure to Give Prior Clear Interpre- c. Employer Bears Burden ...... 1549 tation of Requirement ...... 1520 d. CO Has No Obligation to Help Provide (9) Good Faith by Employer...... 1520 Documents Responsive to Audit ...... 1549 (10) Materiality Exception ...... 1521 e. Inadvertent Errors May Be Excused ...... 1549 (11) Form Confusion ...... 1521 f. Alternate Evidence ...... 1550 (12) Technological Errors ...... 1521 g. Must Be “Substantial Failure” to Produce (13) Pre-PERM Rules ...... 1521 Supporting Documents ...... 1550 h. Documents Not Required ...... 1551 d. Errors of Omission Are Also Fatal ...... 1522 i. No Withdrawal ...... 1551 (1) Materiality Exception ...... 1522 j. CO’s Requests Must Be Clear ...... 1551 (2) Audit Response ...... 1522 k. Sufficiency of Employer’s Documented (3) Incomplete or Modified Application ... 1522 Responses Is Relevant...... 1551 (4) Omitting Responses to Questions ..... 1523 l. Cannot Change Job Reqts. at Audit ...... 1552 e. Signatures Required After Certification ... 1523 8. Supervised Recruitment ...... 1552 (1) Change of Address ...... 1523 (2) No Defense if Nonlawyer Agent a. In General ...... 1552 Commits Malpractice ...... 1523 b. Criteria for Supervised Recruitment ...... 1553 c. Procedure for Supervised Recruitment ..... 1554 f. Applications by Mail ...... 1523 d. Withdrawing Application ...... 1555 g. Application Under Penalty of Perjury ...... 1523 e. Debarment for Pattern or Practice Failures1555 h. Supporting Docs Not Filed with ETA 9089 . 1523 9. Payment of Fees ...... 1556 3. Nat’l Prevailing Wage Center (NPWC) ..... 1524 10. Investigation and Suspension of Application Process ...... 1556 4. Recruitment Process ...... 1524 11. Debarment ...... 1556 a. For Professional Occupations ...... 1524 12. Final Decision by CO ...... 1556 (1) Timing ...... 1525 (2) Job Order with SWA ...... 1525 13. Refiling under PERM ...... 1559 (3) Posting Notice of Filing ...... 1527 C. Validity of the LC ...... 1559 (4) Sunday Ads ...... 1528 D. Duplicate LC ...... 1559 (5) Professional Journals ...... 1528 E. Reissued Labor Certification ...... 1560 (6) Placed in Most Appropriate Newspaper 1529 F. No Expedited Cases for Aging-Out Children .. 1560 (7) Additional Steps ...... 1530 G. Substitution of Beneficiary ...... 1560 (8) 30- and 180-Day (& 6-Month) Reqts. .. 1534 H. Amendment or Modification of the LC ...... 1560 b. For Nonprofessional Occupations ...... 1535 I. Sale, Barter or Purchase of LC ...... 1561 c. Advertising Requirements ...... 1536 J. Special Substitution Rule for Prof’l Athletes ... 1561 (1) 8 CFR §656.16(f) ...... 1536 K. Revocation/Invalidation of LC ...... 1561 (2) Content Reqts. Not Always Required .. 1542 L. Denial; Appeal Process ...... 1561 (3) Name Change ...... 1542 M. Withdrawal ...... 1562 (4) Different Job Title, Same Job Duties ... 1542 N. Basic Job Requirements ...... 1562 (5) Error Not Due to Employer ...... 1542 O. Unduly Restrictive ...... 1572 d. Counting Time Periods and Timelines ..... 1543 1. Defined ...... 1572 e. No Waiver of Requirements ...... 1543 2. Business Necessity ...... 1577 f. Company Move May Alter Recruitment .. 1543 3. Procedure by DOL ...... 1580

1426 [Table of Contents, Chapter 7] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

IX. Labor Certification under PERM, cont’d U. Recruitment Program ...... 1595 1. Errors ...... 1595 P. Prevailing Wage (PW) ...... 1581 2. Must Interview Applicants and State “Lawful 1. In General ...... 1581 Job Related Reasons” for Denial ...... 1595 2. Four-Level Wage System ...... 1581 3. Unnecessary to Interview Applicants Who 3. ACWIA Prevailing Wage ...... 1582 Don’t Meet Minimum Qualifications ...... 1597 4. Time Period for Prevailing Wage ...... 1582 4. Technological Errors ...... 1603 5. Employer Ability to Pay PW ...... 1583 6. Employer Challenges to PWD ...... 1583 X. Schedule A, Teachers, Live-Ins, Other Cases 7. Errors in the Prevailing Wage ...... 1583 A. Notice ...... 1603 8. Retention of PWD ...... 1584 B. College/University Teachers ...... 1603 9. 100% of Wage Offered ...... 1584 C. Professional Athletes ...... 1605 10. Wage at Time of Filing, Pmt. Above D. Live-In Household Domestic Service Workers .. 1605 Stated Wage, CO’s Determination at Time E. Cases Processed Directly in National Office ... 1605 of Review ...... 1584 11. Range of Wage ...... 1584 F. Schedule A Precertification ...... 1605 12. Two Prevailing Wages ...... 1584 XI. Administrative Appeal; Review by BALCA 13. Fringe Benefits; Contingent Compensation ... 1584 A. Generally ...... 1606 14. Shifting Employment Site to Pay Lower PW Is Impermissible ...... 1585 B. Procedure ...... 1606 15. PW for Professional Athletes ...... 1585 1. Review Must Be Sought by Employer ...... 1606 16. Content Reqts. on PWD Application...... 1585 2. De Novo Review ...... 1607 17. Burden of Proof ...... 1585 3. Appeal Limited to CO Grounds of Denial ... 1607 18. Prior Law Regarding PWD ...... 1585 4. Request for Reconsideration ...... 1607 5. Motion to Reopen ...... 1610 Q. Bona Fide Job Offer ...... 1586 6. Appeal to BALCA ...... 1610 1. In General ...... 1586 7. Requests to Reconsider and on Appeal ...... 1611 2. “Totality of Circumstances” Test ...... 1587 8. Equitable Tolling; Untimely Appeals ...... 1612 3. Employer Not Contractor ...... 1588 9. Review Limited to Record and Legal 4. Cannot Divert Qualified U.S. Applicant to Argument ...... 1612 Other Job ...... 1589 10. Briefs ...... 1613 5. Multiple Job Offers ...... 1589 11. Decisions...... 1613 6. New Job ...... 1589 12. BALCA Can Now Remand to CO ...... 1613 7. Ability to Pay the Salary ...... 1589 13. No Review of Regulations ...... 1614 8. Filing Location; Virtual Office ...... 1589 C. En Banc Review ...... 1614 9. Position Cannot Be Out of U.S...... 1590 D. Interlocutory Appeals ...... 1614 10. Foreign Degree Requirement for Position .. 1590 E. Order to Show Cause ...... 1614 11. Employer Must Be Legally Operating ...... 1590 12. Cannot Circumvent Reqts. by Filing in F. Discipline Lawyers ...... 1614 Different Office ...... 1590 G. Appeals to AAO ...... 1614 13. Attorney’s Suspension or Fraud as Factor ..... 1591 XII. Federal Judicial Review 14. Attestation Reqts. under §656.10(c)(8) ...... 1591 A. Standing ...... 1614 R. Full-Time and Permanent ...... 1592 B. Abuse-of-Discretion Standard Applicable ...... 1614 S. Layoffs ...... 1594 C. Litigation to Expedite DOL Proceeding ...... 1615 T. Location of Job ...... 1594 D. Attorney’s Fees ...... 1615

CHAPTER 8 RELIEF FROM REMOVAL

I. Overview 2. By Stipulation ...... 1636 A. Forms of Relief ...... 1621 3. At Conclusion of Removal Hearing ...... 1636 B. Withdrawal of Relief Under IIRIRA...... 1621 a. Eligibility ...... 1636 C. Withdrawal of Relief Pre-IIRIRA...... 1622 b. Timing of Request ...... 1636 D. Withdrawal of Relief for c. Prior Voluntary Departure Grant ...... 1636 Violation of Protective Order ...... 1622 4. Voluntary Departure is Discretionary ...... 1636 E. Timing in Request for Relief ...... 1622 5. Expiration of VD Period ...... 1637 F. DHS Production of Application ...... 1623 6. Civil Penalty and Denial of Other Relief G. Burden & Standard of Proof after REAL ID ... 1623 for Failure to Depart ...... 1637 H. Presentation of Evidence ...... 1623 a. In General ...... 1637 I. Fundamentally Fair Hearing ...... 1624 b. Effect of Motions to Reopen/Reconsider.. 1637 J. Criminal and Other Conduct c. Reopened Proceedings ...... 1638 Affecting Discretionary Cases ...... 1624 d. Petition for Review Terminates VD ...... 1638 e. Conditions of VD Must Be Met ...... 1638 K. Agency Standards/Policies When Deciding f. Release and Voluntary Departure ...... 1639 Relief Must Be Tied to Purpose of g. VAWA Self-Petitioners ...... 1639 Immigration Statute ...... 1626 h. VD for Minors ...... 1639 L. Constitutional Protection for Due Process Violations when Seeking Relief ...... 1626 7. Additional Conditions ...... 1639 8. Changes in VD from Previous Law ...... 1639 M. International Law Issues ...... 1628 9. Effective Date ...... 1639 N. Same-Sex Marriage Recognized ...... 1628 O. Equitable Tolling When Seeking Relief ...... 1628 C. Procedural Issues ...... 1640 P. Security Checks ...... 1629 1. Extensions ...... 1640 2. Motions to Reopen ...... 1640 II. Good Moral Character 3. Hearsay Evidence ...... 1640 A. Statutory Ineligibility ...... 1629 4. Use of Testimony ...... 1640 1. INA §101(f) Criteria ...... 1629 5. BIA and Voluntary Departure ...... 1640 2. Catch-All Provision ...... 1632 6. Circuit Courts and Voluntary Departure .... 1641 3. Standard of Review ...... 1632 a. Generally ...... 1641 4. Judicial Review ...... 1632 b. Stay of Voluntary Departure ...... 1641 B. Discretionary Ineligibility ...... 1632 c. Standard for Stay of VD ...... 1641 III. Extreme Hardship d. Stay of Removal vs. Stay of VD ...... 1642 A. Application Under the INA...... 1633 e. No Exhaustion of Remedies ...... 1642 B. Defining Extreme Hardship ...... 1633 7. Three- and Ten-Year Bar and VD ...... 1642 C. Adjudicating an Extreme Hardship Claim ...... 1633 D. Administrative Review ...... 1642 1. Evidence ...... 1633 2. Separation or Relocation ...... 1634 E. Judicial Review...... 1642 3. Death of the Qualifying Relative ...... 1634 1. Limitations on Judicial Review ...... 1642 4. Relevance to Nonqualifying Relatives ...... 1634 2. Abuse-of-Discretion Standard ...... 1643 5. Aggregating Hardships ...... 1634 IV. Voluntary Departure (VD) V. Cancellation of Removal A. Prehearing Voluntary Departure by DHS...... 1634 A. Elimination of Suspension of Deportation 1. Generally ...... 1634 and INA §212(c) ...... 1643 2. Visa Waiver Medical Problem ...... 1635 B. Cancellation of Removal for LPRs ...... 1643 B. VD in Removal Proceedings ...... 1635 1. Eligibility ...... 1643 1. Prehearing VD; VD Prior to Completion of a. “Lawfully Admitted for Permanent Proceedings ...... 1635 Residence” for 5 years ...... 1643 a. In General ...... 1635 b. Resided in U.S. Continuously for 7 Yrs. After b. IJ Ruling ...... 1635 Having Been Admitted in “Any” Status ...... 1645 c. Master Calendar Hearing ...... 1635 c. Not Been Convicted of Agg. Felony ...... 1646 d. Notice ...... 1635 d. Warrants Favorable Exercise of Discretion .. 1646 e. Travel Documents ...... 1635 2. Persons Ineligible for LPR Cancellation .... 1646 1617 1618 [Table of Contents, Chapter 8] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

V. Cancellation of Removal, cont’d f. Eligible for Non-LPR Cancellation if LPR B. Cancellation of Removal for LPRs, cont’d Status Obtained by Fraud or Mistake ...... 1665 g. Eligible if LPR Subject to Removal ...... 1666 3. Continuous Residence/Physical Presence and Stop-Time Rule ...... 1647 2. Ineligibility for Non-LPR Cancellation ...... 1666 a. Crewmen ...... 1666 a. Service of NTA ...... 1647 b. Admitted on J to Receive Graduate b. Commission of Certain Crimes ...... 1648 Medical Training ...... 1666 4. Application ...... 1649 c. Inadmissible under §212(a)(3) or 5. Is Cancellation Indefinite? ...... 1649 Deportable under §237(a)(4) ...... 1666 6. Changes from Waiver under Former §212(c) 1650 d. Persecuted Others under §241(b)(3)(B)(i) ... 1666 a. Effective Date ...... 1650 e. Previously Received Suspension ...... 1666 b. LPR vs. “Lawfully Domiciled” ...... 1650 f. Was in Deportation or Exclusion c. Commencement of Residence ...... 1650 Proceedings before IIRIRA ...... 1666 d. Aggravated Felony Bar to Cancellation .... 1651 g. 10-Year Bar from Filing Motion to Reopen e. Tolling of Residence Period ...... 1651 if Applicant Overstayed Grant of VD ...... 1666 f. Motions to Reopen ...... 1652 3. Continuous Physical Presence and Stop- g. Continuing Viability of §212(c) for Time Rule ...... 1666 Persons in Deportation Proceedings ...... 1652 4. Equitable Tolling and 10-Year Reqt...... 1666 7. Continuing Availability of §212(c) Relief ..... 1652 5. Breaks in Continuous Physical Presence ... 1666 a. Plea or Conviction before AEDPA (4/14/96) . 1652 6. VWP Entrants ...... 1668 b. Plea or Conviction between AEDPA (4/24/96) and IIRIRA (4/1/97) ...... 1652 7. Special Rule Cancellation for Battered c. Proceedings Commenced before 4/1/97 ... 1653 Spouse or Child ...... 1668 d. Pre-AEDPA/IIRIRA Convictions But Post- a. Criteria ...... 1668 AEDPA/IIRIRA Proceedings and St. Cyr ... 1653 b. Special Extreme Hardship Factors e. Adjustment of Status and §212(c) ...... 1654 Tailored to Domestic Violence Apply ..... 1668 f. Regulations Following St. Cyr ...... 1655 c. Standard for Battery and Cruelty ...... 1668 g. Special Motions to Reopen for 212(c) Relief 1655 d. Judicial Review ...... 1669 h. Affirmative §212(c) Application ...... 1655 e. Credible Evidence ...... 1669 i. IMMACT90 Considerations ...... 1656 f. 90/180 Day Bar ...... 1669 j. Pre-IMMACT90 Convictions ...... 1657 g. Section 101(f) ...... 1669 h. Good-Faith Marriage ...... 1669 k. Possible Ineligibility for §212(c) Relief i. Cancellation Is Discretionary ...... 1669 Post–St. Cyr ...... 1658 j. Parole of Family Member ...... 1670 (1) Pre-AEDPA/IIRIRA Conduct, Post- AEDPA/IIRIRA Conviction ...... 1658 8. Limitation on Grant of Cancellation & AOS ... 1670 (2) Reinstatement Under §241(a)(5) ...... 1658 9. Changes from Suspension of Deportation (3) Terrorism ...... 1658 under Former §244(a)(1) and (2) ...... 1670 (4) Departure Prior to Change in Law .... 1658 a. Generally ...... 1670 (5) Ineligibility Under IMMACT90 ...... 1658 b. Cancellation Available to Inadmissible (6) Statutory Counterpart Rule ...... 1658 and Deportable Persons ...... 1670 l. Grant of §212(c) Relief Does Not Always c. Tolling of Physical Presence ...... 1670 Bar Use of Conviction ...... 1659 d. Breaks in Physical Presence ...... 1671 m. Judicial Review ...... 1659 e. Retroactivity ...... 1671 n. Application for §212(c) Relief ...... 1659 10. Criteria for Establishing Hardship ...... 1671 a. General Criteria ...... 1672 8. Discretionary Eligibility for Cancellation b. Family Separation...... 1672 of Removal ...... 1659 c. Economic Hardship ...... 1672 a. Positive Factors ...... 1659 d. Psychiatric and Medical Concerns ...... 1672 b. Negative Factors ...... 1660 e. Lack of Enforcement of a Final Order ..... 1673 c. Other Factors ...... 1660 f. Persecution ...... 1673 d. Outstanding and Unusual Equities ...... 1660 g. Community Ties and Acculturation ...... 1673 e. Diminished Weight of Positive Factors .... 1660 h. Alternative Means of Immigrating May f. Rehabilitation ...... 1661 Not Be a Factor ...... 1673 g. Circumstances Surrounding the Crime ..... 1661 i. Must Consider Each Factor ...... 1673 j. Equities ...... 1674 C. Cancellation of Removal and k. Current Hardship Information ...... 1674 Adjustment of Status for Non-LPRs ...... 1661 11. Application ...... 1674 1. Eligibility ...... 1661 12. Effective Date for Cancellation; Status of a. Physically Present in U.S. for 10 Years .... 1661 Suspension Applications Currently Pending . 1674 b. Good Moral Character for 10 Years ...... 1662 c. Not Been Convicted of Offense under 13. Suspension of Deportation under NACARA §212(a) or §237(a)(2) or (3) ...... 1663 §203, Special Rule Cancellation ...... 1674 d. Removal Would Result in Exceptional Hard- a. In General ...... 1674 ship to USC/LPR Spouse, Parent, or Child .... 1665 b. Salvadorans ...... 1675 e. Warrants Favorable Exercise of Discretion .. 1665 c. Guatemalans ...... 1675 d. ABC Class members include: ...... 1675

CHAPTER 8 • RELIEF FROM REMOVAL 1619

e. Eastern Europeans ...... 1676 IX. Nunc Pro Tunc Permission to Reapply ...... 1692 f. Asylum Office Jurisdiction ...... 1676 g. IJ Jurisdiction ...... 1676 X. Estoppel h. Application ...... 1676 A. Affirmative Misconduct Required ...... 1693 i. Eligibility ...... 1676 j. Proving the Claim ...... 1677 B. Inattention, Failure to Act, or Neglect not k. Special Presumption of Extreme Hardship Sufficient ...... 1694 for Salvadorans and Guatemalans ...... 1677 C. Public Policy Considerations ...... 1694 l. Motions to Reopen ...... 1677 D. Parents of Minor Child ...... 1695 m. Equitable Tolling ...... 1677 E. Estoppel Against Government Funds ...... 1695 n. Circuit Court Authority ...... 1678 F. BIA Has No Estoppel Authority ...... 1695 o. Reinstatement of Removal under §241(a)(5).. 1678 G. Equitable Estoppel and Equitable Tolling 14. Administrative Review ...... 1678 Distinguished ...... 1695 15. Judicial Review ...... 1678 a. Cases Finding No Judicial Review ...... 1678 XI. Collateral Attack on b. Cases Supporting Judicial Review ...... 1680 Prior Deportation Order ...... 1695 c. Review of the Denial of Motions to Reopen for Cancellation ...... 1681 XII. Deferred Action d. Battered Spouse Cases ...... 1681 A. Discretionary ...... 1696 e. NACARA ...... 1681 B. Deferred Action for Childhood Arrivals 16. Suspension of Deportation under Former (DACA) ...... 1696 Provisions ...... 1681 1. In General ...... 1696 a. Seven-Year Suspension ...... 1682 2. Qualifying Criteria ...... 1697 b. Ineligible Persons ...... 1683 3. Disqualifying Criteria ...... 1698 c. Ten-Year Suspension ...... 1683 d. Application of Stop-Time Rule to 4. Procedures ...... 1699 Suspension Cases ...... 1683 5. Evidentiary Requirements ...... 1699 e. Battered Spouse or Child ...... 1685 6. Appeals ...... 1700 f. Barahona Settlement ...... 1685 7. Extensions ...... 1700 8. Disclosure of Information ...... 1700 D. Repapering ...... 1685 9. Other Issues ...... 1700 a. Social Security ...... 1700 VI. Asylum, Withholding of Removal & b. Drivers Licenses ...... 1700 Protection under CAT [see Chapter 4] c. Affordable Health Care Act (Obamacare) .. 1701 d. Medicaid or CHIP ...... 1701 VII. Adjustment of Status (AOS) e. Domicile for In-State Tuition ...... 1701 A. Eligibility ...... 1686 f. WIA and Wagner-Peyser Act ...... 1701 B. All Grounds of Inadmissibility Apply ...... 1686 C. Deferred Action for Parental Accountability C. Discretionary Denials...... 1686 (DAPA) ...... 1701 D. Continuances for Adjustment of Status ...... 1687 D. Deferred Action for Family Members of U.S. E. Motions to Reopen for Adjustment of Status .. 1687 Military and Veterans ...... 1701 F. Voluntary Departure and AOS ...... 1688 E. Preclusion of Review ...... 1702 G. Deportability Generally Does Not Bar AOS ..... 1688 H. IJ Must Adjudicate Adjustment or XIII. Prosecutorial Discretion ...... 1702 Conditionally Terminate Proceedings ...... 1688 I. AOS Unavailable for Certain Individuals ...... 1688 XIV. Waivers under J. Adjustment of Status of Arriving Aliens ...... 1688 §§ 212(g), (h), (i), (k), 209(c), and 213 K. Waiver ...... 1688 A. Generally ...... 1702 L. Security Check/Name Check ...... 1689 B. Other Agency Determination of Inadmissibility . 1702 M. Readjustment of LPRs ...... 1689 C. Stand-Alone and Nunc Pro Tunc Waivers ...... 1702 N. Refugee or Asylee Adjustment of Status ...... 1689 D. Concurrent (“Stacking”) Waivers ...... 1703 O. Judicial Review ...... 1689 E. Waivers Valid Indefinitely...... 1703 F. INA §212(g) Waiver ...... 1704 VIII. Waivers of Removal G. INA §212(c) and Cancellation ...... 1704 A. §237(a)(1)(H), for Certain Misrepresentations ... 1689 H. INA §§212(h), (i) Waivers...... 1704 1. Generally ...... 1689 I. INA §212(k) Waiver ...... 1704 2. Stacking Waivers ...... 1690 J. INA §209(c) Waiver ...... 1704 3. Initial Fraud as a Discretionary Factor ...... 1691 K. INA §213 Waiver ...... 1705 4. Form ...... 1691 L. I‑601 Waivers ...... 1705 5. No Judicial Review of Discretionary M. Administrative Review ...... 1705 Decision ...... 1691 N. Judicial Review...... 1705 B. Waiver Under Predecessor Statute, §241(f) .... 1691 C. §237(a)(1)(E)(iii), Waiver for Smuggling ...... 1692 XV. Private Legislation ...... 1705

CHAPTER 9 ADMINISTRATIVE REVIEW

I. Review by Board of Immigration Appeals I. Notice of BIA Decision and Reissuance ...... 1724 (BIA) J. Withdrawal of Appeal ...... 1724 A. Generally ...... 1709 K. Criticism of BIA Procedures and Decisions ... 1725 B. BIA Jurisdiction ...... 1709 1. Where Jurisdiction Lies ...... 1709 IV. Departure During Appeal 2. Where Jurisdiction Doesn’t Lie ...... 1710 A. Removal/Deportation Proceedings ...... 1726 3. Jurisdiction Derived from AG’s Authority ...1711 B. Exclusion Proceedings ...... 1726 4. BIA May Not Reduce Jurisdiction Pro- vided to it by Statute ...... 1711 V. Reinstatement of Voluntary Departure and C. Board Procedure ...... 1711 Authority to Enter Final Order 1. In General ...... 1711 A. Voluntary Departure Order Generally ...... 1727 2. Three-Member Panel ...... 1711 1. Tolling of VD Period Pending Motion ...... 1727 3. Single Member ...... 1711 2. Reopening When VD Not Followed ...... 1727 4. Affirmance Without Opinion (AWO) ...... 1712 3. Exercising Discretion on VD ...... 1727 a. Generally ...... 1712 B. BIA’s Authority to Enter Final Order of Re- b. Constitutional Challenges to AWO ...... 1712 moval and Federal Review ...... 1727 c. Exhaustion ...... 1712 d. Voluntary Departure and AWO ...... 1713 VI. Motions Practice Before the BIA e. Judicial Review of Streamlining Decision .. 1713 A. Generally ...... 1728 f. Cases Finding No Judicial Review of B. Remands ...... 1729 Streamlining Decision ...... 1713 1. Generally ...... 1729 g. Miscellaneous Dispositions ...... 1714 2. Abuse of Discretion Standard of Review ... 1730 h. Motion to Reopen ...... 1714 3. Substantial Evidence Standard of Review .. 1731 5. En Banc Decisions ...... 1714 4. No Jurisdiction to Review Certain Remands . 1731 6. Clearly Erroneous Rule Established ...... 1714 5. DHS Denied Remand ...... 1731 7. Review by the Attorney General ...... 1714 6. Remand Where Relief Previously Available . 1731 7. Jurisdiction on Remand ...... 1731 D. Certification ...... 1715 E. Acquiescence to Circuit Court Decisions and VII. Appeal from Decisions of DHS Officer .... 1732 Brand X ...... 1715 VIII. Scope of Review F. Undue Influence ...... 1717 A. Limitations on De Novo Review ...... 1732 II. Interlocutory Jurisdiction of BIA ...... 1717 B. Clearly Erroneous Rule ...... 1733 1. In General ...... 1733 III. Appeal Procedure 2. Distinguishing Questions of Fact from Ques- A. In Removal Proceedings ...... 1717 tions of Law, Judgment, & Discretion ...... 1733 1. Timeliness of Appeal ...... 1717 3. Application of the Clearly Erroneous Rule 1734 2. BIA Can Reissue Decision to Avoid Injustice 1719 C. No Fact-Finding ...... 1735 3. Waiver of Appeal ...... 1719 D. Credibility Determinations ...... 1736 4. Art. III Limitations Not Binding on BIA .... 1720 1. Review of Record ...... 1736 5. No Jurisdiction before IJ Once Appeal Is 2. Clearly Erroneous Standard ...... 1736 Lodged ...... 1720 3. Totality of Circumstances Under REAL ID .. 1736 6. Form of Appeal ...... 1720 4. No IJ Credibility Finding ...... 1737 7. Briefing Schedule ...... 1720 5. Remand on Credibility ...... 1737 8. Amicus Curiae...... 1721 6. Credibility of Documents ...... 1738 9. Appeal from Decisions of a DHS Officer .. 1721 7. Opportunity to Explain Inconsistencies ..... 1738 B. Summary Dismissal of Appeal ...... 1722 8. Judicial Review Under Substantial-Evi- C. Rebuttal of Summary Dismissal...... 1723 dence Standard ...... 1738 D. Disciplinary Consequences ...... 1723 E. Waiver of Issues Not Objected to or Raised Before IJ ...... 1738 E. Three-Member Panel Disposition ...... 1723 F. BIA Decisions ...... 1739 F. Automatic and Discretionary Stays ...... 1723 1. No Boilerplate Decisions ...... 1739 G. Holding Case in Abeyance ...... 1724 2. Brief Affirmance ...... 1740 H. Denial of Oral Argument ...... 1724 1707 1708 [Table of Contents, Chapter 9] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

VIII. Scope of Review, cont’d G. Reopening or Reconsideration Barred ...... 1760 1. Time & Numerical Limitations ...... 1760 G. Court Review of BIA or IJ Decision ...... 1741 2. Motion Seeks Relief That Is Barred ...... 1762 1. BIA Separate Opinion ...... 1741 3. Motion Seeks Relief That BIA/IJ Have No 2. Summary Affirmance ...... 1742 Jurisdiction Over ...... 1762 3. Review of Both IJ and BIA Decisions ...... 1742 4. Prior Opportunity to Apply for Benefits .... 1763 H. Precedent Decisions, Index Decisions, Consti- 5. Application for Relief Must Be Attached ... 1763 tutional Claims, and Application of the Law .. 1743 6. Ineligible for Relief ...... 1763 1. Precedent vs. Nonprecedent Decisions ...... 1743 7. Inadequate Support for Legal Argument .... 1763 2. Index Decisions ...... 1744 8. Appeal Pending ...... 1763 3. Immigration Law Advisor ...... 1744 9. Marriage-Based Visa Petition Not Yet Ap- 4. Constitutional Claims ...... 1744 proved ...... 1763 5. Law Applied at Time of Review ...... 1744 10. Motion Abandoned ...... 1764 I. Administrative Notice ...... 1744 11. Motion Filed During Judicial Proceedings . 1764 1. Country Conditions ...... 1745 12. Motion Challenges BIA Streamlining ...... 1764 2. Commonly Known Facts and Opinions ..... 1745 H. Exceptions to Rule Barring Motions to Reopen . 1764 3. Challenging Administrative Notice ...... 1745 1. Sua Sponte Reopening by BIA ...... 1764 4. Judicial Notice Taken by Court ...... 1746 2. Agreement to Reopen ...... 1766 IX. Review by Administrative Appeals Office 3. Changed Country Conditions ...... 1767 (AAO) a. In General ...... 1767 A. Jurisdiction ...... 1746 b. Standards ...... 1769 B. De Novo Review; Supplementing Record ...... 1747 c. Reinstated Removal Orders ...... 1769 d. Motion to Reopen Granted ...... 1769 C. Standard and Burden of Proof ...... 1748 e. Motion to Reopen Denied ...... 1771 D. Notice of Appeal and Brief ...... 1748 f. Previous Hearing/Proceeding Refers to IJ 1. Timeliness of Appeal ...... 1748 Not BIA ...... 1773 2. Motions to Reopen and Appeals ...... 1748 g. Change in U.S. Law Not Basis for 3. Standing to Appeal ...... 1749 Changed Conditions ...... 1773 4. Second Petitions ...... 1750 h. Change in U.S. or Personal Conditions Not 5. Unlawful Presence Accrues During Appeal .. 1750 Basis for Changed Conditions ...... 1773 6. Appeal Not Mandatory ...... 1750 4. Judicial Review of Motions to Reopen ...... 1773 E. Counsel and Representation ...... 1750 5. Exceptional Circumstances; Failure to Re- F. Submission of Evidence ...... 1750 ceive Notice for In Absentia Orders ...... 1774 G. Nonprecedent, Adopted, and Precedent AAO 6. Equitable Tolling for Motion to Reopen or Decisions ...... 1750 Reconsider ...... 1774 H. Certification for Appellate Review to AAO .... 1751 a. 90-Day/30-Day Period ...... 1774 I. Confidentiality of Decision ...... 1751 b. 180-Day Period in In Absentia Proceedings . 1777 c. Numerical Limitation ...... 1778 X. Review by BALCA ...... 1751 d. Ineffective Assistance and VD Bar ...... 1778 XI. Review by OCAHO ...... 1751 7. Motions to Reopen/Rescind In Absentia Orders ...... 1778 XII. Review by Exchange Visitor Waiver 8. VAWA Petitioners May Waive Both Time Review Board and Numerical Limits ...... 1779 A. Provides for Review of §212(e) Waivers ...... 1752 I. Motion to Reopen or Reconsider Does Not B. Composition ...... 1752 Result in a Stay ...... 1779 J. Appeal of Motion to Reopen Does Not XIII. . Motion to Reopen or Reconsider Before Provide Automatic Stay ...... 1779 EOIR K. Unavailability Issue ...... 1779 A. Generally ...... 1752 L. Untimely Opposition ...... 1781 1. Filing ...... 1752 2. Motion Filed with IJ or BIA? ...... 1753 M. Due Process ...... 1781 3. Motions to Reopen Under CAT ...... 1753 N. Discretionary Denials ...... 1781 1. Deferential Abuse of Discretion Standard .. 1781 B. Motion to Reconsider ...... 1753 2. Marriage During Removal Proceedings ..... 1782 C. Motion to Reopen ...... 1755 3. Denial Must be Reasoned, Not Arbitrary ... 1782 1. In General ...... 1755 4. Fugitive Disentitlement Doctrine ...... 1782 2. Supporting Documentation and Fees ...... 1756 5. Consideration of Motion to Reopen 3. Ineffective Assistance of Counsel ...... 1756 Factors ...... 1783 4. Grant of Motion; Finality of Order ...... 1757 D. Motions Filed while Appeal Pending ...... 1757 XIV. Motion to Reopen or Reconsider Before E. BIA May Deny Reopening ...... 1757 Regional Service Centers ...... 1783 F. Departure Bar ...... 1758

CHAPTER 10 FEDERAL JUDICIAL REVIEW

I. Overview 14. Discovery under 28 USC §2241 ...... 1831 A. Generally ...... 1789 15. Stay or Delay ...... 1832 1. Limited Judicial Review...... 1789 16. Collateral Attack ...... 1832 2. Preservation of Review of Constitutional 17. Successive Applications and Fee Reqts. .... 1832 Claims and Questions of Law ...... 1790 18. Review of Summary Removal under 3. Limitations on the Preservation of Ques- §235(b)(1) ...... 1833 tions of Law ...... 1792 19. Procedural Requirements ...... 1833 4. Constitutional Review and Jurisdiction to 20. Sanctions Against Counsel ...... 1834 Determine Jurisdiction Preserved ...... 1793 D. Mandamus ...... 1834 5. Habeas May Always Be Preserved if Court 1. Generally ...... 1834 of Appeals Review Is Insufficient ...... 1793 2. Mandamus Permitted ...... 1834 6. Non–Final Orders ...... 1794 3. Mandamus Denied ...... 1835 7. Procedures for Review Altered ...... 1795 4. Where Mandamus Lies ...... 1836 B. Scope of Review ...... 1796 5. Where Mandamus Doesn’t Lie ...... 1837 1. Challenges Based upon Substantial Evidence . 1796 6. Venue in Mandamus Cases ...... 1840 2. Discretionary or Factual Determinations .... 1797 E. Injunctive Relief ...... 1840 C. Restrictions Under INA §242 re Judicial Re- F. Declaratory Judgment Action ...... 1841 view, Including of Final Orders of Removal ... 1799 1. Expedited Removal ...... 1799 IV. Bar to Judicial Review 2. Other Restrictions Under INA §242 ...... 1800 A. Preclusion of Review ...... 1842 D. Restriction on Judicial Review in Other Areas ... 1800 1. AG’s Discretionary Decisions re Detention or Release ...... 1842 E. Summary ...... 1801 2. Decisions re Persons with Convictions ...... 1842 II. INA §242 Review a. REAL ID Act Preserves Review of Legal A. Limited to Review of Final Orders of Removal .. 1801 and Constitutional Issues ...... 1843 b. Review of CAT Claims ...... 1844 B. Statutory Standard Under INA §242(b)(9) ...... 1803 c. Jurisdiction to Determine Jurisdiction ...... 1844 C. Pre-IIRIRA Definition of Final Order ...... 1805 d. Jurisdiction Where Deportation Is Not for D. Chadha ...... 1805 Crime Barring Review ...... 1845 E. District Director or FOD Decisions ...... 1806 e. Limited Habeas Jurisdiction Remains ...... 1846 F. Pendent Review ...... 1806 3. The Discretionary Decision Bars ...... 1846 G. Collateral Orders ...... 1806 a. Finding No Review ...... 1846 b. Narrow Construction Permitting Review . 1850 III. Other Jurisdictional Bases c. Additional Cases Providing for Review ... 1852 A. Federal Question, 28 USC §1331 Review ...... 1806 d. Preclusion Not Limited Solely to Re- moval Proceedings ...... 1855 B. APA Review ...... 1809 e. Review Barred under §242(a)(2)(B)(i) ..... 1856 C. Habeas Corpus Jurisdiction ...... 1819 f. Jurisdiction Notwithstanding 1. The Writ of Habeas Corpus ...... 1819 §242(a)(2)(B)(i) ...... 1858 2. Habeas Review after AEDPA, IIRIRA and g. Review of Adjustment of Status ...... 1859 the REAL ID Act ...... 1819 h. Mandamus Action ...... 1863 3. Scope of Habeas ...... 1822 4. The §242(g) Bar ...... 1863 4. Habeas Actions and Bail Determinations ... 1823 5. Review of DHS or AG Decisions re VD .... 1867 5. Not Available to Review Matters Within 6. Review of DHS or AG Judgment re Relief and Not Precluded by §242 ...... 1824 under §§212(h) or (i), Cancellation of Re- 6. Not Available to Review Visa Revocation .... 1824 moval (§240A), VD (§240B) ...... 1867 7. Meaning of “In Custody” for Habeas ...... 1824 7. Review of DHS Decisions re Summary 8. Transfer of Person after Habeas Filed ...... 1826 Exclusion (§235(b)(1)) ...... 1867 9. Personal Jurisdiction, Personal Service, 8. Review of DHS Decisions to Grant or Deny and Venue ...... 1827 Waiver under §§212(d)(12) or 237(a)(3)(C)(ii) 10. Persons Outside the U.S...... 1829 for Being Inadmissible or Deportable for 11. Exhaustion of Remedies ...... 1829 Having Final Order under §274C ...... 1868 12. Law of the Case; Res Judicata ...... 1831 9. Review of DHS or AG Decisions to Grant 13. Must be Filed in District Court...... 1831 or Deny Waiver under §212(h) ...... 1868 1785 1786 [Table of Contents, Chapter 10] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

IV. Bar to Judicial Review, cont’d u. Where No Timeframe for Agency Action ... 1894 A. Preclusion of Review, cont’d v. Where Issue Fairly Raised...... 1894 w. Where Issue Raised via Motion to Reopen .. 1894 10. Review of DHS or AG Decisions to Grant x. “Intimately Intertwined” Issues ...... 1894 or Deny Waiver under §212(i) ...... 1868 y. Where Waiver of Appeal Was Not Know- 11. Review of Decisions or Actions re Waiver of ingly, Intelligently, and Voluntarily Made ... 1894 §212(a)(9)(B) Inadmissibility ...... 1868 14. Pro Se Applicants ...... 1895 12. Review of Removal Decision by IJ Based on 15. Non–Final Orders ...... 1895 Medical Certification under §240(c)(1)(B) .... 1868 16. Government Waiver ...... 1895 13. Collateral Attacks on Removal Orders ...... 1868 14. Suits Against U.S. or Its Agencies or Of- C. Other Article III Questions ...... 1895 ficers under §279 ...... 1868 1. Subject-Matter Jurisdiction ...... 1895 15. Sec’y of State or Consular Officer’s Deci- a. Consular Nonreviewability ...... 1895 sion to Revoke IV or NIV under §221(i) ... 1868 b. Extending Consular Nonreviewability to 16. Asylum Review ...... 1869 Interdiction ...... 1896 17. Judicial Review of CAT Claims ...... 1871 c. Review of Visa Denials Despite Consular a. Claims re Withholding of Removal Not Nonreviewability ...... 1897 Involving Criminal Issues ...... 1871 d. Mandamus Against Consular Officers ..... 1898 b. Claims for Persons with Criminal Issues e. Rasul Extended §1331 Jurisdiction ...... 1898 Addressing Deferral of Removal ...... 1871 f. Challenge to Regs if Person Out of U.S...... 1898 c. Review of Legal Issues ...... 1874 g. Vacating Order of Removal ...... 1899 d. Review of CAT Regulations ...... 1874 2. Standing ...... 1899 e. Review in Criminal Proceeding ...... 1874 a. In General ...... 1899 18. Review of Corroboration Requirement ...... 1874 b. Zone-of-Interest Analysis 19. Reinstatement of Removal Order Review .. 1874 (“Prudential Standing”) ...... 1900 20. Strong Presumption of Review...... 1875 c. No Injury, Traceability, or Redressability .. 1901 21. Clear Statement Rule ...... 1876 d. Third-Party Standing ...... 1902 22. Maintaining the Writ of Habeas Corpus ..... 1876 e. Threatened Injury ...... 1905 f. Statutory Standing ...... 1905 B. Exhaustion Requirement ...... 1876 g. Lyons Injunctions ...... 1906 1. Statutory Failure to Exhaust ...... 1876 h. Petitioners Seeking IVs or NIVs for 2. Issue and Claims Exhaustion Distinguished .. 1877 Beneficiaries Outside the U.S...... 1906 3. Prudential Failure to Exhaust ...... 1877 i. Person Claiming Derivative Citizenship .. 1907 4. Denying for Failure to Exhaust ...... 1877 j. Beneficiaries of Immigration Benefits ..... 1907 5. More Liberal View of Exhaustion ...... 1879 k. Congressional and State Standing ...... 1908 6. Waiver Before IJ as Basis for Failure to 3. Ripeness ...... 1908 Exhaust ...... 1881 4. Mootness ...... 1910 7. Exhaustion of Constitutional Issues ...... 1881 a. Generally ...... 1910 8. Exhaustion of Nonconstitutional Claims .... 1882 b. Exceptions ...... 1913 9. Motions to Reopen ...... 1886 c. Review Beyond Administrative Record ... 1915 10. Where Evidence Not Presented ...... 1886 d. Effect of Mootness ...... 1915 11. Where No Opportunity to Appeal ...... 1886 5. Attenuation ...... 1915 12. Exhaustion May Be Prudential Not 6. Laches ...... 1915 Jurisdictional ...... 1886 7. Political Question ...... 1915 13. Situations Where Exhaustion Inapplicable .... 1886 8. Doctrine of Non-Inquiry ...... 1916 a. No Adequate Procedure to Exhaust ...... 1886 9. Proper Party Defendant ...... 1916 b. No Notice of Appeal Procedure ...... 1887 c. In Detention Cases ...... 1887 D. Waiver of Review ...... 1916 d. Ineffective Assistance of Counsel ...... 1888 1. Fugitive Disentitlement Doctrine ...... 1916 e. Where Review Procedure Isn’t Mandatory .. 1888 2. Futility ...... 1917 f. AWO/Burbano Cases ...... 1890 3. Issues Not Raised in Appellate Brief ...... 1917 g. Where Not Part of Removal Proceeding ... 1890 4. Incorporation by Reference ...... 1918 h. Citizenship Claims ...... 1890 5. Waiving a Waiver ...... 1918 i. Where BIA Raises Issue Sua Sponte ...... 1890 6. Manifest Injustice; Exceptional Circumstance . 1919 j. Where Waiver of BIA Appeal Not Voluntary 1891 E. Prior Adjudication ...... 1919 k. Where Manifest Injustice ...... 1891 F. Departure from U.S...... 1919 l. Post–BIA Briefing Issues ...... 1891 1. Generally ...... 1919 m. Pure Questions of Law ...... 1891 2. Equitable Tolling ...... 1920 n. Ultra Vires Agency Actions ...... 1891 3. Wrongful Deportation ...... 1920 o. Constitutional Challenges ...... 1891 4. Post-Removal Motions to Reopen ...... 1921 p. Futile Challenges ...... 1892 G. Venue ...... 1921 q. Estoppel Claims ...... 1893 r. Retroactivity Claims ...... 1894 V. Scope of Review s. Where Clear Showing of Irreparable Harm .. 1894 A. Plenary Review ...... 1922 t. Where Agency Failed to Inform Appli- B. Committed to Agency Discretion ...... 1922 cant of Right to Relief ...... 1894

CHAPTER 10 • FEDERAL JUDICIAL REVIEW 1787

C. De Novo Review ...... 1924 VI. Procedures for Review of Removal Decisions D. Post Hoc Review Prohibited ...... 1925 A. Removal Proceedings ...... 1962 1. Generally ...... 1962 E. Agency Record ...... 1927 2. Exception to 30-Day Rule ...... 1963 1. In General ...... 1927 3. Mailbox Rule ...... 1964 2. Complete Record ...... 1927 4. Motions to Reopen or Reconsider ...... 1964 3. Brief ...... 1928 5. Interlocutory Orders ...... 1964 4. Review Limited to Agency Record ...... 1928 6. Premature Appeals ...... 1965 5. Discovery Beyond the Record: Exception 7. Former Habeas Filings ...... 1965 to “Record Rule” Review ...... 1929 8. Procedural Requirements When Filing ...... 1965 6. Alternatives When Record Is Deficient ...... 1930 B. No Automatic Stay ...... 1965 F. Standards of Review ...... 1930 1. Generally ...... 1965 1. In General ...... 1930 2. Contempt for Violating the Stay ...... 1967 2. Facially Legitimate and Bona Fide ...... 1931 3. Vacating Stay ...... 1967 3. Manifestly Contrary to Law ...... 1931 4. Stay of Removal Does Not Stay Time Pe- 4. Abuse of Discretion Test ...... 1931 riod to File Motion to Reopen...... 1967 a. In General ...... 1931 5. District Court Stay Pending Appeal ...... 1967 b. Arbitrary and Capricious ...... 1932 C. Bond/Bail Pending Petition for Review ...... 1967 c. Departure from Prior Precedent ...... 1933 d. Reliance on Impermissible Factors, Not D. Departure Does Not Bar Review ...... 1967 Considering Evidence and Other Errors ... 1934 E. Stay of Voluntary Departure ...... 1969 e. Failure to Exercise Discretion ...... 1935 F. Venue ...... 1969 f. Unfettered Discretion ...... 1935 G. Standard of Review ...... 1971 g. Extreme Hardship ...... 1935 H. Motions to Reopen/Reconsider ...... 1971 h. Motions to Reopen ...... 1935 i. Motions to Reconsider ...... 1939 I. Treatment of Nationality Claims ...... 1972 j. Motions to Remand ...... 1939 J. Consolidation of Issues for Review ...... 1973 k. Review of Other Agency Actions ...... 1939 K. Record on Appeal ...... 1973 5. Substantial-Evidence Test ...... 1941 L. Remands ...... 1973 a. Statutory Review of Removal Order ...... 1941 1. General Principles ...... 1973 b. Criteria ...... 1942 2. Remand Unnecessary ...... 1974 c. Review of Factual Determinations and 3. Review After Remand ...... 1975 Nondiscretionary Grants ...... 1942 4. Evidence and Remands ...... 1976 d. Review of Decisions re Corroboration ..... 1943 5. Scope of Remand ...... 1976 e. Review of Factual Finding in 6. Applicable Law on Remand ...... 1977 Suspension/Cancellation ...... 1944 7. Stipulations and Remands ...... 1977 f. Revocation of Visa Petitions, Labor 8. Government Request for Remand ...... 1977 Certifications, and Visa Denials ...... 1944 9. Petitioner’s Request for Remand ...... 1977 g. Employer Sanctions Cases ...... 1944 10. Remand as a Final Order ...... 1977 h. Rescission ...... 1944 M. Judicial Notice ...... 1978 i. Registry ...... 1944 j. Good Moral Character ...... 1944 N. All Writs Act ...... 1978 k. Terrorist Determination under §212(a)(3)(B) . 1944 O. Stay of the Mandate ...... 1978 l. AWO / Streamlined Opinions ...... 1945 P. Scope ...... 1978 6. Harmless Error Doctrine ...... 1945 G. Law of the Case Doctrine ...... 1945 VII. Review of Summary (Expedited) Removal Orders ...... 1978 H. Doctrine of Agency Deference ...... 1946 1. Generally ...... 1946 a. Chevron Deference ...... 1946 VIII. Class Treatment b. Auer Deference ...... 1946 A. Generally ...... 1979 c. Brand X Deference ...... 1947 B. Subclasses ...... 1980 2. Chevron Step 1: Clarity of Statute ...... 1947 C. Class Treatment and Habeas ...... 1980 a. Theoretical Ambiguity Not a Basis to Go D. Summary Exclusions under §235(b)(1) ...... 1980 Beyond Step 1 ...... 1949 b. Contrary Interpretations by Circuit Courts E. Specificity ...... 1980 Does Not Mean the Statute is Ambiguous ... 1950 F. Class Treatment and Statutes of Limitation..... 1981 c. Auer Deference Also Requires Ambiguity .. 1950 G. Class Treatment and Individual Reps ...... 1981 3. Chevron Step 2 Cases Granting Deference 1950 H. Notice to Class Members ...... 1981 4. Brand X Deference ...... 1954 I. Class Claims and Mootness...... 1981 5. Inapplicability of Chevron ...... 1955 J. Class Treatment and Res Judicata ...... 1982 6. Skidmore Deference ...... 1957 7. IJ Decision with AWO by BIA ...... 1958 K. Class Treatment and Law Applicable to Class ... 1982 8. Situations Where Deference Inappropriate .... 1958 L. Class Treatment and RICO Claims ...... 1982 9. Rule of Lenity and Chevron Deference ...... 1962 M. Class Treatment and Pro Se Litigants ...... 1982

1788 [Table of Contents, Chapter 10] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

IX. Rules of Statutory Construction in I. Avoidance of Serious Constitutional Questions1989 Immigration J. Congressional Intent ...... 1990 A. Clarity of Statutory Language ...... 1982 K. Avoidance of Violation of International Law . 1990 1. Clear Language ...... 1982 L. Foreign Convictions ...... 1990 2. Literal Language of Statute ...... 1983 M. Retroactive Application ...... 1991 3. Context of Statutory Language ...... 1983 1. Analytic Framework ...... 1991 4. Title of the Statute or Section ...... 1983 2. Regulations ...... 1993 5. No Superfluous Language ...... 1984 3. Cases Denying Retroactive Application..... 1993 6. Presumption of the Law by Congress ...... 1984 4. Cases Permitting Retroactivity ...... 1995 7. Silence in a Statute ...... 1985 5. Constitutional Concerns ...... 1996 8. The Last Antecedent Rule ...... 1985 9. Authoritative Interpretation ...... 1985 N. Summary Judgment ...... 1997 10. Practice as Interpretation ...... 1985 O. Pleading to Avoid Motion to Dismiss under B. Omission/Inclusion of Language ...... 1985 Rule 12(b)(6) ...... 1997 C. Deportation Statutes ...... 1986 P. Sovereign Immunity ...... 1998 D. Complexity of Immigration Law ...... 1987 Q. Void for Vagueness ...... 1998 E. Ameliorative Statute ...... 1987 R. Stare Decisis ...... 1999 F. Agency Deference ...... 1987 S. Split Decisions of the Supreme Court ...... 1999 G. Principles Concerning More than One Statute 1987 T. Rulemaking vs. Adjudication ...... 1999 H. Jurisdictional Limitations vs. Claims Pro- cessing ...... 1988 X. Effective Dates ...... 1999

CHAPTER 11 ACTIONS AGAINST GOVERNMENT OFFICIALS

I. Civil Rights Statutes F. Actual or Apparent Authority, Color of Law, A. 42 USC §1983 ...... 2003 Aiding and Abetting ...... 2021 B. 42 USC §1981 ...... 2004 1. In General ...... 2021 C. 42 USC §§ 1985 & 1986 ...... 2005 2. War Crimes Exception ...... 2022 D. Civil Rights Complaints Filed G. Extraordinary Rendition Claim ...... 2022 Administratively ...... 2005 H. Corporate Liability Under ATCA or TVPA ... 2022 I. Jurisdiction and Service of Process ...... 2023 II. Federal Tort Claims Act (FTCA) J. Exhaustion of Domestic Remedies and Comity .. 2023 A. Generally ...... 2005 K. Forum Non Conveniens ...... 2023 B. Procedural Issues ...... 2006 L. Political Question / Act of State Doctrine ...... 2023 C. Jurisdiction in the Immigration Context ...... 2007 M. Measuring Damages...... 2023 D. Scope of Employment ...... 2007 N. Pleading Standards ...... 2024 E. Exceptions...... 2007 1. Due Care and Discretionary Function ...... 2007 VI. Trafficking Victims Protection 2. Intentional Tort ...... 2008 Reauthorization Act (TVPRA) ...... 2024 F. Actions Outside the U.S...... 2009 G. Privilege ...... 2009 VII. International Terrorism Statutes ...... 2025 H. Reasonableness ...... 2010 I. Damages ...... 2010 VIII. Tucker Act ...... 2025

III. Actions Arising Under the Constitution IX. Foreign Sovereign Immunities Act (FSIA) A. Bivens Claims Generally ...... 2010 A. Sole Basis for Jurisdiction ...... 2026 B. Bivens Actions Against DHS Officers ...... 2011 B. Service of Process ...... 2027 C. Bivens Actions Barred Against PHS Officials 2013 C. Suits Against State Sponsors of Terrorism ..... 2027 D. Jurisdiction Over Bivens Claims in 1. Former 28 USC §1605(a)(7) ...... 2027 Immigration Context ...... 2013 2. 2008 Nat’l Defense Auth. Act (NDAA) ..... 2028 E. Damages Under Bivens ...... 2014 a. In General ...... 2028 F. Reporting DHS Misconduct Generally ...... 2014 b. Eligibility ...... 2029 G. Actions Under 5th Amend. Takings Clause .... 2014 c. Statute of Limitations ...... 2029 IV. Privacy Act [See Chapter 3, ¶ X.T.6.i] d. Pending Cases Subject to New Law ...... 2029 3. Scope of Conduct; Causality: Material V. Alien Tort Claims Act (ATCA) and Support ...... 2029 Torture Victim Protection Act (TVPA) 4. Torture or Hostage Taking ...... 2030 A. Alien Tort Claims Act ...... 2014 5. Extrajudicial Killings ...... 2030 B. Torture Victim Protection Act ...... 2015 6. Engagement in Military Hostilities ...... 2030 C. Law of Nations ...... 2015 7. Damages ...... 2030 D. Post-Sosa ATCA Case Law ...... 2015 D. Retroactive/Extraterritorial Application ...... 2031 1. Generally ...... 2015 E. Head of State Immunity Not Eliminated ...... 2031 2. Westfall Act and ATCA Claims ...... 2017 3. Political Question and Act of State X. Inter-American Commission on Human Doctrines Bars ATCA Claims? ...... 2017 Rights ...... 2032 4. Military Commissions Act §7 Bars All Non- Habeas Claims Against U.S. Government .... 2017 XI. Private Rights of Action under INA & 5. Extraterritoriality and ATCA Claims ...... 2017 Treaties ...... 2032 6. State Law Claims ...... 2019 E. Torture Victims Protection Act (TVPA) ...... 2019 XII. Doctrine of Immunity 1. Generally ...... 2019 A. Qualified Immunity ...... 2033 2. Statute of Limitations ...... 2020 B. Absolute Immunity ...... 2035 3. Definition of Torture ...... 2021 C. Diplomatic Immunity ...... 2035 4. Relationship Between ATCA and TVPA ... 2021 D. U.N. Immunity...... 2036

2001 2002 [Table of Contents, Chapter 11] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

XIII. Attorney’s Fees 4. Proceedings Covered Under EAJA ...... 2044 A. The Equal Access to Justice Act (EAJA) ...... 2036 a. Federal Litigation ...... 2044 1. Legislative History ...... 2036 b. Administrative Proceedings ...... 2044 2. Common Law Bad-Faith Exception ...... 2036 c. Naturalization/Citizenship Claims ...... 2045 d. Criminal Proceedings ...... 2045 3. Eligibility for Fees under EAJA ...... 2037 e. Labor Certification ...... 2045 a. Generally ...... 2037 f. Employer Sanctions ...... 2045 b. Jurisdiction ...... 2037 c. Eligible Parties ...... 2037 5. Submitting the EAJA Fee Application ...... 2045 d. Whose Fees Are They? ...... 2037 a. Filing Deadline ...... 2045 b. Equitable Tolling of Filing Deadline...... 2046 e. Prevailing Party ...... 2038 c. The Fee Application ...... 2046 (1) Catalyst Theory ...... 2038 (2) Rejection of Catalyst Theory in 6. Calculating EAJA Fees ...... 2046 Buckhannon ...... 2038 a. Generally ...... 2046 (3) Remands ...... 2039 b. Cost of Living ...... 2046 (4) Need Not Obtain Relief on Every c. Special Factors ...... 2047 Claim to Prevail ...... 2040 d. Interest ...... 2048 (5) Modification of Injunction or e. Fees for Fees ...... 2048 Consent Decree ...... 2040 f. Fees for Certain Activities...... 2049 (6) Prevailing Party Even if Outcome is g. Costs and Expenses ...... 2049 Not Different ...... 2040 h. Unreasonable Fees ...... 2049 (7) Alternative Basis for Fee Recovery i. Standard of Review ...... 2049 Precluded ...... 2040 B. Attorney’s Fees Under Other Statutes ...... 2049 f. Substantial Justification ...... 2040 1. 42 USC §1988 ...... 2049 (1) Generally ...... 2040 2. FTCA ...... 2049 (2) Reasonableness ...... 2041 3. Bivens ...... 2050 (3) The Government’s Legal Position .... 2041 4. FOIA ...... 2050 (4) No Substantial Justification Found ... 2042 5. Employer Sanctions and Unfair (5) Substantial Justification Found ...... 2043 Immigration Employment Proceedings ..... 2050 (6) Voluntary Remands and Substantial 6. Trafficking Victims ...... 2050 Justification ...... 2044 7. International Child Abduction Remedies (7) Standard of Review ...... 2044 Act (ICARA) ...... 2050 g. Special Circumstances ...... 2044 8. Fair Labor Standards Act ...... 2050

CHAPTER 12 EMPLOYER SANCTIONS, UNFAIR IMMIGRATION-RELATED EMPLOYMENT PRACTICES, AND LEGALIZATION

I. Employer Sanctions 4. Effect of Bankruptcy ...... 2082 A. Generally ...... 2053 5. Abandonment ...... 2082 1. Authorized to Work...... 2053 B. Discovery ...... 2082 2. Hire, Recruit or Refer For a Fee ...... 2053 1. Generally ...... 2082 3. Employees ...... 2053 2. Subpoenas ...... 2082 4. Employers ...... 2054 3. Motion for Summary Decision...... 2082 5. Preenactment Employees ...... 2056 C. The Hearing ...... 2083 B. Verification System (Form I‑9) ...... 2056 1. Generally ...... 2083 1. Who is subject to verification? ...... 2056 2. Evidence ...... 2083 2. Who is not subject to verification? ...... 2056 3. Burden of Proof ...... 2083 3. What must the employer do? ...... 2056 4. Record of Proceedings ...... 2084 4. Employee Attestation ...... 2063 5. No Private Right of Action ...... 2084 5. Retention of I‑9 Forms ...... 2063 6. Attorney Sanctions ...... 2084 6. Correcting I‑9s in Employer Audit ...... 2063 7. Attorney Conflict ...... 2084 C. Reverification of I‑9 Forms ...... 2064 1. Generally ...... 2064 VII. Defenses 2. Continuing in Employment ...... 2064 A. Good Faith and Substantial Compliance ...... 2084 3. Reasonable Expectation of Employment .... 2065 1. Generally ...... 2084 4. Rehiring ...... 2065 2. Good-Faith Defense to Unauthorized 5. Reverification Due to Change in Citizenship . 2065 Hiring ...... 2084 6. Puerto Rican Birth Certificates ...... 2065 3. Good-Faith Defense to Paperwork Viola- D. Employer Violations ...... 2066 tions; Technical or Procedural Violations ..... 2085 1. In General ...... 2066 4. Substantial-Compliance Defense to 2. Burden of Proof ...... 2069 Paperwork Violations ...... 2090 3. Failure to Comply with Verification System . 2069 B. Participation in E-Verify as a Defense ...... 2091 4. False Statements on Form I‑9 ...... 2069 C. Participation in Another Employer E. Compliance Programs ...... 2070 Compliance System ...... 2091 1. E-Verify Program ...... 2070 D. Impossibility as a Defense ...... 2091 2. IMAGE ...... 2076 E. Collateral Estoppel / Res Judicata ...... 2091 3. SAVE ...... 2076 F. Other Defenses ...... 2091 4. Monitoring and Compliance Branch ...... 2077 G. Waiver ...... 2092 II. Investigation of Employer Sanctions Cases H. Independent Contractor ...... 2092 I. Casual Hires ...... 2092 A. ICE Needs a Lead and Articulable Facts ...... 2077 J. Statute of Limitations ...... 2092 B. Background of ICE Audits ...... 2077 K. Improper Statutory Charge ...... 2092 C. Worksite Enforcement Strategy ...... 2077 L. Employer in Multi-Employer Bargaining Unit 2092 III. Notice of Inspection (NOI) M. Grandfathered Employees ...... 2092 A. Generally ...... 2078 N. Ultra Vires Regulations ...... 2093 B. Content of NOI ...... 2079 O. Constitutional Challenges ...... 2093 C. Investigation During Labor Dispute ...... 2079 D. Administrative Subpoenas and Enforcement .. 2079 VIII. Decision/Order of ALJ E. Civil Search Warrants ...... 2079 A. Final Order ...... 2093 F. Warrantless Searches ...... 2080 B. Settlement ...... 2093 C. Penalty Imposed ...... 2093 IV. Action Subsequent to Audit ...... 2080 IX. Penalties V. Notice of Intent to Fine (NIF) ...... 2080 A. Generally ...... 2093 VI. Hearing Procedures 1. Cease and desist orders ...... 2094 A. Initiation of Proceedings ...... 2081 2. Civil penalties ...... 2094 1. Complaint and Answer ...... 2081 3. Paperwork violations ...... 2094 2. Dismissal of Counts ...... 2081 4. Compliance and Remedial Orders...... 2094 3. Default ...... 2081 B. Enforcement of Final Decision and Order ...... 2094

2051 2052 [Table of Contents, Chapter 12] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

IX. Penalties, cont’d XII. Employment / Labor Rights C. Circumstances Warranting Mitigation or Aggra- A. Protection under National Labor Relations Act .. 2113 vation of Penalties for Paperwork Violations ..... 2095 1. Generally ...... 2113 1. In General ...... 2095 2. Concerted Activity ...... 2114 2. Size of Employer ...... 2096 3. Deportation ...... 2114 3. Good Faith / Bad Faith of Employer ...... 2097 4. Backpay under NLRA ...... 2114 4. Seriousness of Violation ...... 2097 5. Alternate Remedies ...... 2115 5. Employee Authorized to Work...... 2098 6. NLRA and Audits, E-Verify, and No- 6. History of Violations ...... 2099 Match SSA Letters...... 2115 7. Other Factors Relied Upon by ALJs ...... 2099 7. State Labor Laws ...... 2115 8. Strikes and Labor Disputes ...... 2116 D. Calculating Fines for Paperwork Violations ... 2101 9. Fine Proceedings ...... 2116 1. Statutory and Regulatory Formula ...... 2101 10. Labor Rights and Labor Protection of NIVs .. 2116 2. OCAHO Formula ...... 2101 11. Notification of Employee Rights Under 3. ICE Approach ...... 2102 Federal Labor Laws ...... 2117 E. Indemnity Bond Penalty ...... 2104 12. Applying for U and T Visas ...... 2117 F. Debarment under Executive Order ...... 2104 G. Criminal Penalties ...... 2104 B. Protection under FLSA, MSAWPA, 1. Pattern or Practice Violations ...... 2104 LHWCA, FMLA, and Other Acts ...... 2117 2. Injunction ...... 2105 1. Undocumented Workers Protected ...... 2117 3. Non-Prosecution Agreement ...... 2105 2. FLSA/MSPA Claims for Undocumented 4. Criminal Cases ...... 2105 Workers Remain Post–Hoffman ...... 2118 5. Knowingly Hiring Unauthorized Workers . 2105 3. FLSA and Visa Petitions ...... 2118 6. Smuggling, Transporting, or Harboring ..... 2105 4. FLSA and MSAWPA Joint Employment .. 2119 7. Money Laundering ...... 2105 5. H-2B and FLSA Conflict ...... 2119 8. Seizure of Assets ...... 2105 6. FLSA Class Actions and Pleading Issues... 2119 9. Double Jeopardy ...... 2105 7. LHWCA (Longshore and Harbor Workers H. Defining Entity for Penalty Purposes; Compensation Act) ...... 2119 Piercing the Corporate Veil...... 2105 8. Family and Medical Leave Act (FMLA) ... 2119 9. Forced Labor Under 18 USC §1589 ...... 2119 X. Administrative and Judicial Review C. Protection Under State Workers’ Comp. Laws ... 2120 A. Administrative Review ...... 2106 D. Protection Under Title VII and State Anti- B. Judicial Review ...... 2106 Discrimination Laws ...... 2120 C. Stay Pending Appeal ...... 2107 E. Protection under the Age Discrimination in D. Attorney’s Fees ...... 2107 Employment Act (ADEA) ...... 2121 E. Preemption ...... 2107 F. Right to Lost Wages in Other Civil Litigation 2122 1. Arizona Enforcement ...... 2107 G. Discovery Issues Involving Undocumented 2. Oklahoma Enforcement ...... 2107 Plaintiffs ...... 2122 3. California Enforcement ...... 2107 H. TVPRA and ATCA ...... 2123 F. Constitutionality ...... 2108 I. Civil RICO Actions ...... 2123 G. Effective Dates...... 2108 J. Interagency Working Group ...... 2124 XI. Employment Authorization (EA) XIII. Unfair Immigration-Related A. Generally ...... 2108 Employment Practices B. Employment Incident to Status ...... 2108 A. Scope and Purpose ...... 2124 C. Employment with Specific Employer Incident 1. Who is Protected? ...... 2124 to Status ...... 2108 2. Employer ...... 2125 D. Persons Enlisted in Armed Forces ...... 2108 3. What is Prohibited? ...... 2125 E. Persons Who Must Apply for EA ...... 2109 4. The Statute Does Not Cover: ...... 2131 F. Battered Spouses and Children ...... 2109 B. Procedures ...... 2132 G. Persons with Approved Employment-Based 1. Filing a Charge ...... 2132 Petitions in Compelling Circumstances ...... 2110 2. Hearing ...... 2135 H. Nonimmigrant Extensions; Change of Em- 3. Types of Relief ...... 2138 ployer; Change of Status ...... 2111 4. Applicable Law ...... 2139 I. Professional Athletes ...... 2111 5. Burden of Proof ...... 2139 J. Asylum and Employment Authorization ...... 2111 6. Defenses ...... 2141 K. Students ...... 2111 7. Constitutional Issues ...... 2142 L. Persons in Proceedings, Ordered Removed ..... 2111 8. Judicial Review ...... 2143 M. DACA ...... 2112 N. NIW Physicians ...... 2112 XIV. Legalization Under §245a; SAWs; O. Applicants for Cancellation ...... 2112 Family Unity; LIFE Act P. Parolees ...... 2112 A. Legalization Under INA §245A ...... 2144 Q. Applicants with Final Order Under Supervision . 2112 B. Special Agricultural Worker Legalization ...... 2144 R. Procedure for Obtaining EAD ...... 2112 C. Family Unity Program ...... 2144 S. Termination and Revocation of EA ...... 2113 D. LIFE Act Adjustment ...... 2144 T. Employment Auth. as Constitutional Right ..... 2113 E. Confidentiality Provision ...... 2145

CHAPTER 13 NATURALIZATION AND CITIZENSHIP

I. Eligibility for Citizenship 5. Attachment to Principles of Constitution; A. Citizenship by Birth in U.S. or Certain Well-Disposed to Good Order and Incorporated Territories ...... 2149 Happiness of U.S...... 2173 B. Citizenship by Acquisition at Birth ...... 2150 6. Willingness to Bear Arms, Perform Noncom- 1. Generally ...... 2150 batant Service or Work of Nat’l Importance . 2173 2. Residence or Physical Presence of USC 7. Not Otherwise Barred as ...... 2173 Parent ...... 2151 a. Subversive ...... 2173 3. Elimination of Retention Requirement ...... 2152 b. Member of the Communist Party ...... 2173 4. Children Born Out-of-Wedlock ...... 2152 c. Deserter ...... 2173 a. Post–Morales-Santana ...... 2153 d. Person against whom removal 5. Adopted Children ...... 2153 proceedings are pending, or where there 6. Procedures and Burden of Proof ...... 2153 are “final findings” of deportability ...... 2173 C. Citizenship by Derivation through the Natu- e. Person who received relief from Selective ralization or U.S. Birth of One Parent ...... 2153 Service system based on alienage ...... 2173 1. Former Law ...... 2153 8. Must Demonstrate Knowledge of English 2. Constitutional Claim of Derivative Language, U.S. History, and Government ... 2174 Citizenship ...... 2156 9. Must Take an Oath of Allegiance ...... 2176 3. Child Citizenship Act ...... 2156 a. Definition of Lawful Admission for B. Other Naturalization Programs ...... 2176 Permanent Residence ...... 2156 1. Veterans/Military Service ...... 2176 b. Definition of Residing in the U.S...... 2156 a. Military Service for One Year ...... 2176 c. Definition of Legal Custody ...... 2157 b. Military Service During Hostilities ...... 2176 d. Definition of Under the Age of 18 ...... 2157 c. Documentation ...... 2177 e. Children Born Out-of-Wedlock ...... 2157 d. Failure to Appear or Respond to RFE ...... 2178 f. Step-Children ...... 2157 e. Revocation ...... 2179 g. Certificate of Citizenship ...... 2157 f. Fees Waived ...... 2179 h. Passport ...... 2158 g. Good Moral Character ...... 2179 i. Effective Date ...... 2158 2. Posthumous Citizenship through Death D. Certificate of Citizenship under INA §322 ..... 2158 While on Active Duty Service ...... 2179 E. Citizenship by Naturalization ...... 2159 3. Filipino War Veterans ...... 2179 F. Citizenship by Otherwise Filing Certificate of 4. Persian Gulf Veterans ...... 2180 Citizenship ...... 2159 5. Hmong Veterans’ Naturalization Act ...... 2180 6. Extraordinary Contributions to National Security ...... 2180 II. Eligibility for Naturalization by Application 7. Military Accessions Vital to National A. Criteria for Naturalization ...... 2160 Interest (MAVNI) ...... 2180 1. Must Be Lawful Permanent Resident ...... 2160 8. Expedited Naturalization ...... 2181 a. Lawfully Admitted for Perm. Residence .. 2160 a. Military ...... 2181 b. Conditional Permanent Resident ...... 2161 b. SSI Beneficiaries ...... 2182 c. Rollback For Residency ...... 2161 d. Military Duty ...... 2161 III. Application Procedure 2. 18 Years or Older...... 2161 A. Administrative Naturalization ...... 2182 3. Continuous- and Physical-Presence Reqts. .. 2161 B. Filing of Application ...... 2182 4. Good Moral Character Requirements ...... 2165 1. N-400 ...... 2182 a. False Testimony ...... 2165 2. Timing of Application ...... 2182 b. Crimes ...... 2166 3. Family Grouping of Applications ...... 2182 c. Voting Unlawfully; False Claim to USC .. 2167 4. Substitute Filing and Place of Oath ...... 2182 d. Polygamy ...... 2168 5. Withdrawal; Failure to Prosecute ...... 2182 e. Discretionary GMC Determination ...... 2168 6. Interview; FBI Name Checks ...... 2182 f. Other Grounds ...... 2169 7. 120-Day Decision Period ...... 2183 g. Military Applicants ...... 2170 8. Change of Address ...... 2183 h. No Limitation on GMC Inquiry ...... 2171 9. Rescheduling Naturalization Interview and i. Effect of Removal Proceedings ...... 2171 Denial for Abandonment ...... 2183 2147 2148 [Table of Contents, Chapter 13] KURZBAN’S IMMIGRATION LAW SOURCEBOOK, 16TH ED.

III. Application Procedure 3. Relinquishment Voluntary and Intentional 2195 B. Filing of Application, cont’d 4. Presumption Against Expatriation ...... 2195 5. Certificate of Loss of Nationality (CLN) ... 2196 10. Failure to Return I‑551 ...... 2183 6. Loss of Citizenship and LPR Status ...... 2196 11. Re-examination ...... 2183 12. Removal Proceedings ...... 2184 13. Nondiscretionary Grant ...... 2184 VII. Administrative and Judicial Review C. Expedited Naturalization of Children of USCs ... 2184 A. Administrative Review ...... 2196 1. Appeal of Naturalization Denial ...... 2196 D. Priority Processing for SSI Recipients ...... 2184 2. Loss of Nationality; Passport Denial, E. Oath of Allegiance ...... 2184 Revocation, Restriction...... 2196 F. Expedited Oath ...... 2184 3. Administrative Review to Deny, Revoke, G. Name Change at Time of Certificate ...... 2184 Restrict, or Invalidate a Passport ...... 2197 H. Correcting Certificate ...... 2184 B. Judicial Review ...... 2197 1. District Court Review of Naturalization IV. Passport through Department of State Denial ...... 2197 A. Obtaining a Passport ...... 2185 2. Standard of Proof, Burden of Proof, and 1. Generally ...... 2185 Standard of Review ...... 2197 2. Passports for Officials ...... 2185 3. De Novo Review Hearing and Summary 3. Passport for a Child ...... 2185 Judgment ...... 2198 4. Passport Cards ...... 2185 4. Court Intervention if USCIS Fails to Act ... 2198 5. Service Passports ...... 2185 5. Applicant in Removal Proceedings ...... 2200 6. Passports to Enter the U.S.; Passport Cards ... 2185 6. Cancellation, Revocation or Refusal to Issue 7. Expedited Passports ...... 2186 Passport or Declaration of Citizenship ...... 2200 8. Electronic / Machine-Readable Passports .. 2186 7. Other Claims Challenging Revocation or 9. Designation of Place of Birth on Passport .... 2186 Cancellation of Passport or Certificate of B. Cancellation of Passport ...... 2186 Citizenship ...... 2201 C. Invalidity, Revocation, or Refusal to Issue 8. Denaturalization Cases ...... 2201 Passport ...... 2187 9. Denial of Certificate of Citizenship ...... 2201 D. Amending and Replacing Passports ...... 2188 10. Denial of Rights to Citizenship ...... 2201 E. Information Regarding Passport Holders ...... 2188 11. Claim of Citizenship Arising in Review of F. Administrative Review of Passport Denial ...... 2189 Removal Proceeding ...... 2202 G. Noncitizen Nationals of the U.S...... 2189 a. Exhaustion ...... 2202 b. Transfer to Circuit Court ...... 2202 V. Dual Citizenship ...... 2189 c. Bar under INA §336(b) ...... 2203 d. Bar under INA §360(a) ...... 2203 VI. Loss of Citizenship A. Grounds for Denaturalization ...... 2189 VIII. Criminal Matters Related to Citizenship 1. Membership in Certain Organizations ...... 2189 A. Procuring Naturalization in Violation of Law .... 2203 2. Concealment of Material Evidence or B. Criminal Penalty for False Claim to Citizen- Willful Misrepresentation ...... 2190 ship or False Statement for Naturalization ...... 2205 3. Illegal Procurement ...... 2191 1. 18 USC §911 ...... 2205 4. Automatic Denaturalization ...... 2192 2. 18 USC §1015 ...... 2205 5. Subversive Activities ...... 2192 C. Other Criminal Offenses re Citizenship ...... 2206 6. Military Service Denaturalization ...... 2192 7. Residence in the U.S. After Naturalization 2192 1. Identification Document Fraud ...... 2206 2. Fraud and Related Activity in Connection B. Denaturalization Procedure ...... 2192 with ID Documents ...... 2206 1. Court Proceedings ...... 2192 2. Administrative Revocation ...... 2194 3. Knowing and Willful Use of False Passport .. 2206 3. Revocation after Conviction for 4. Knowing and Willful False Statement to Naturalization Fraud ...... 2194 Obtain Passport ...... 2206 4. Effect on Family Members of 5. Failure to Disclose Role as Document Denaturalization ...... 2194 Preparer ...... 2206 C. Cancellation of Certificate of Citizenship ...... 2194 6. Aggravated Identity Theft in Conjunction with Immigration Crimes ...... 2206 D. Voluntary Relinquishment of U.S. Citizenship .. 2194 1. Generally ...... 2194 7. Criminal Penalty for Alien Voting in 2. Burden of Proof ...... 2195 Federal Election ...... 2206