SPECIAL REPORT TRACKING THE BIDEN AGENDA ON IMMIGRATION ENFORCEMENT by Jorge Loweree and Aaron Reichlin-Melnick About the American Immigration Council The American Immigration Council works to strengthen America by shaping how America thinks about and acts towards immigrants and immigration and by working toward a more fair and just immigration system that opens its doors to those in need of protection and unleashes the energy and skills that immigrants bring. Through its research and analysis, the American Immigration Council provides policymakers, the media, and the general public with information about how the immigration system works, the impact of policy proposals, and the crucial role that immigration plays in our communities and workplaces. Visit us at www.AmericanImmigrationCouncil.org and www.ImmigrationImpact.com. About the Authors Jorge Loweree is the Director of Policy at the American Immigration Council, where he directs the Council’s administrative and legislative advocacy and leads the Council’s efforts to provide lawmakers, policymakers, advocates, and the general public with accurate and timely information about the role of immigrants in the United States. Previously, Jorge spent ten years in a variety of positions with the U.S. House of Representatives, most recently as Senior Counsel for Immigration Law and Policy, working on a wide range of enforcement and benefits issues. Jorge holds a J.D. from the University of Colorado Law School and Bachelor of Arts in Mathematics from the Saint Mary’s University. Aaron Reichlin-Melnick is Policy Counsel at the American Immigration Council, where he works primarily on immigration court issues and the intersection of immigration law and policy. He previously worked as a Staff Attorney at the Council, working on impact litigation, Freedom of Information Act litigations, and practice advisories. Prior to joining the Council, he was an Immigrant Justice Corps Fellow placed as a Staff Attorney at the Immigration Law Unit of The Legal Aid Society in New York City, representing immigrants placed in removal proceedings because of a prior criminal conviction. Aaron holds a J.D. from the Georgetown University Law Center and a B.A. in Politics and East Asian Studies from Brandeis University. Acknowledgments For her invaluable advice and assistance in conducting much of the research and analysis associated with the development of this report, we thank Emily Samson, Consultant with the American Immigration Council. For their assistance in fact-checking, editing, and reviewing this report, we also thank Rebekah Wolf, Emma Winger, Walter Ewing, and Karen Lucas. 2 I Tracking the Biden Agenda on Immigration Enforcement Contents About the American Immigration Council ................................................................................................. 2 About the Authors ....................................................................................................................................... 2 Acknowledgments....................................................................................................................................... 2 Executive Summary ................................................................................................................................... 4 Immigration Enforcement in the Trump Era .............................................................................................. 4 President Biden’s Commitments and Accomplishments on Immigration Enforcement ......................... 5 Analysis and Recommendations ............................................................................................................... 7 Introduction ................................................................................................................................................ 9 Immigration Enforcement in the Trump Era ............................................................................................ 9 Arrests and Removals .................................................................................................................................. 9 Detention Numbers and Capacity ............................................................................................................ 12 Challenges to Sanctuary Jurisdictions ..................................................................................................... 14 Engagement with Local Law Enforcement .............................................................................................. 15 Worksite Enforcement .............................................................................................................................. 16 Funding for Interior Enforcement ............................................................................................................. 16 Enforcement During the COVID-19 Pandemic .......................................................................................... 17 President Biden’s Commitments and Accomplishments on Immigration Enforcement ................... 18 Enforcement Priorities .............................................................................................................................. 18 Expedited Removal ................................................................................................................................... 21 Immigration Court Issues.......................................................................................................................... 21 Detention Numbers and Capacity ............................................................................................................ 21 Sanctuary Policies ..................................................................................................................................... 23 Engagement with Local Law Enforcement .............................................................................................. 24 Agreements with Law Enforcement ......................................................................................................... 24 Worksite Enforcement .............................................................................................................................. 24 Analysis and Recommendations ............................................................................................................. 25 Arrests and Removals ................................................................................................................................ 25 Immigration Detention ............................................................................................................................. 26 Sanctuary Policies .................................................................................................................................... 26 Engagement with Local Law Enforcement .............................................................................................. 27 Funding for Interior Enforcement ............................................................................................................ 27 Endnotes .................................................................................................................................................... 28 3 I Tracking the Biden Agenda on Immigration Enforcement Executive Summary The Trump administration implemented a total of 363 policy changes to interior enforcement with the overarching goal of subjecting all undocumented immigrants to enforcement actions. President Biden assumed office following significant commitments to implement changes to immigration enforcement, to limit enforcement activities, and to reduce the hardship experienced by noncitizens and their families. This report analyzes some of the most consequential changes to immigration enforcement implemented by the Trump administration, the changes that President Biden committed to making during his campaign and transition, and the progress that his administration has achieved in its first 100 days. The report concludes with recommendations for additional changes that the administration should prioritize in working to create a fairer and more humane system of immigration enforcement. Immigration Enforcement in the Trump Era Arrests and Removals Trump issued executive orders in 2017 that eliminated existing enforcement priorities and redefined “all removable aliens” as targets for deportation by Immigration and Customs Enforcement (ICE). In addition, the administration extended the reach of “expedited removal”—the process by which an individual immigration enforcement official can order the immediate deportation of certain undocumented immigrants without going through immigration court proceedings. The administration also sought to implement a rule that would end the authority of immigration judges to administratively close cases. That rule is currently blocked by a preliminary injunction. Despite these measures, removals of individuals apprehended by ICE never rose above 100,000 a year under the Trump administration—less than half the level of President Obama’s first term. The reasons for this include higher immigration court backlogs under Trump, increased attorney representation rates, and less cooperation from state and local jurisdictions. Detention Numbers and Capacity In one of his 2017 executive orders, Trump demanded increased detention along the southern border, an end to the so-called “catch-and release” policy for families, and a restriction on parole,