Asylum Primer 7th - ailadownloads.org. Grounds of Ineligibility and Statutory Bars to Asylum and Withholding of Removal ..... 181

xix Copyright ©2015. American Immigration Lawyers Association.

DETAILED TABLE OF CONTENTS AILA’S ASYLUM PRIMER, SEVENTH ED.

Dedication ..................................................................................................................... v Preface ........................................................................................................................ vii Chapter One Sources of Asylum Law .............................................................................................. 1

I. International Law .............................................................................................. 1 A.Overview of Treaty Law .............................................................................. 1 B.The 1951 United Nations Convention and the 1967 United Nations

Protocol Relating to the Status of Refugees ................................................ 3 1. The Definition of Refugee ....................................................................... 5 2. The Principle of Nonrefoulement ............................................................. 6

C.UNHCR Interpretations and Guidance ........................................................ 7 1. UNHCR Handbook and Guidelines on Procedures and Criteria for

Determining Refugee Status under the 1951 Convention and the 1967 Protocol relating to the Status of Refugees ........................................... 7

2. UNHCR Executive Committee Conclusions ........................................... 9 3. Other UNHCR Publications .................................................................... 9

D.Convention Against Torture and Other Cruel, Inhuman or Degrading Treatment or Punishment .......................................................................... 11

E.Customary International Law ..................................................................... 12 II.Domestic Law ................................................................................................ 14

A.U.S. Statutes ............................................................................................... 15 1. Refugee Act of 1980 .............................................................................. 15 2. Illegal Immigration Reform and Immigrant Responsibility Act ........... 16 3. USA PATRIOT Act ............................................................................... 18 4. The REAL ID Act .................................................................................. 19 5. The Trafficking Victims Protection Reauthorization Act of 2008 ....... 21

B.Regulations................................................................................................. 21 C. Board of Immigration Appeals Decisions ................................................. 22 D.Attorney General Opinions ........................................................................ 24 E.Field Manuals and Internal Agency Guidelines ......................................... 24

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Copyright ©2015. American Immigration Lawyers Association.

F.Legacy INS’s Basic Law Manual and the Asylum Officer Basic Training Course Lesson Modules ............................................................................ 27

G.Legacy INS, DHS, and EOIR Policy Directives, Memoranda, and Statements.................................................................................................. 27

H.Federal Court Decisions ............................................................................. 30 III.Laws of Other Countries ............................................................................... 32

Chapter Two Asylum and Withholding of Removal ..................................................................... 35

I. The Two Theaters of U.S. Refugee Protection ............................................... 35 II. Legal Standards for Demonstrating Asylum Eligibility .............................. 39

A. Country of Nationality and Statelessness .................................................. 40 1. Nationality ........................................................................................... 41 2. Statelessness......................................................................................... 43

B. Unable or Unwilling to Return or Avail Oneself of Protection ................. 45 1. Unable or Unwilling to Return ............................................................ 45 2. Unable or Unwilling to Avail Oneself of Protection ........................... 47

C. Definition of Persecution ........................................................................... 47 1. Physical Harm ...................................................................................... 54 2. Threats ................................................................................................. 56 3. Cumulative Harm ................................................................................. 60 4. Psychological Harm ............................................................................. 61 5. Harm to Family Members or Third Parties .......................................... 62 6. Severe Economic Disadvantage or Deprivation of Life Essentials ..... 64 7. Arrests and Detention .......................................................................... 66 8. Harassment and Discrimination ........................................................... 68 9. Prosecution .......................................................................................... 70

D. Past Persecution or Well-Founded Fear of Future Persecution ................. 74 1. Past Persecution ................................................................................... 74

i. Fundamental Change in Circumstances ............................................. 77 ii. Internal Relocation ............................................................................. 80 iii.Humanitarian Asylum ....................................................................... 86

a.Severity of Past Persecution ............................................................ 86 b.Other Serious Harm ........................................................................ 90

2. Well-Founded Fear of Future Persecution ........................................... 92

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i. Subjective and Objective Components .............................................. 93 ii. Matter of Mogharrabi Four-Part Test ................................................ 96 iii.Other Important Considerations ........................................................ 97

a.Specific Threat of Harm .................................................................. 98 b.Remaining in the Country of Past or Feared Persecution ............... 99 c.Possession of Valid Travel Documents ........................................ 101 d.Returning to the Country of Feared Persecution .......................... 102 e.Pattern or Practice of Persecution ................................................. 104 f.Persecution of Family and Friends ................................................ 107 g.Refugee Sur Place ......................................................................... 109

E. Nexus and the Five Protected Grounds ................................................... 111 1. Mixed Motive .................................................................................... 115 2. Establishing Motive ........................................................................... 118 3. Protected Grounds.............................................................................. 119

i. Race ................................................................................................. 120 ii. Religion............................................................................................ 122 iii.Nationality ....................................................................................... 127 iv.Membership in a Particular Social Group ....................................... 129 v. Political opinion ............................................................................... 150

a.Imputed Political Opinion ............................................................. 155 b.Coercive Population Control ........................................................ 157

1.What is “forced”? ..................................................................... 158 2.Involuntary Insertion of an IUD ............................................... 161 3.Eligibility of Spouses ................................................................ 162 4.Other Resistance ....................................................................... 165 5.Applicants Who Have Not Physically Undergone a Procedure 167

F. Government Actor or Groups the Government is Unable or Unwilling to Control ................................................................................................. 172

III. Withholding of Removal ........................................................................... 177 A. Legal Standards for Withholding of Removal ......................................... 178

IV. Grounds of Ineligibility and Statutory Bars to Asylum and Withholding of Removal ................................................................................................ 181

A. Grounds of Ineligibility for Asylum ........................................................ 182 1. Safe Third Country ............................................................................ 182

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2. One-Year Filing Deadline .................................................................. 184 i. Changed Circumstances .................................................................... 189 ii. Extraordinary Circumstances ........................................................... 192 iii.Filing Within a Reasonable Period of Time .................................... 197

3. Previous Asylum Denial .................................................................... 198 B. Statutory Bars to Asylum and Withholding of Removal ......................... 200

1. Persecution of Others ......................................................................... 201 i. Coercion or Duress ........................................................................... 203 ii. Peripheral Involvement .................................................................... 207

a.Chain of Events ............................................................................. 207 b.Failure to Act ................................................................................ 209

iii.Knowledge of Persecutory Acts ...................................................... 211 2. Particularly Serious Crime ................................................................. 214

i. Aggravated Felonies ......................................................................... 216 ii. Non-Aggravated Felonies ................................................................ 219

3. Serious Nonpolitical Crimes .............................................................. 224 4. Danger to the Security of the United States ....................................... 228 5. Terrorism-Related Grounds ............................................................... 230

i. Terrorist Activity Defined ................................................................ 232 ii. Engaging in Terrorist Activity ......................................................... 234 iii.Terrorist Organization Defined ....................................................... 237 iv.Exceptions and Waiver of Certain Grounds of Inadmissibility ....... 240

a.Exemptions from Terrorism-Related Inadmissibility Grounds..... 241 b.Material Support Duress Exception .............................................. 247 c.“Insignificant” and “Limited” Material Support to a Tier III

Organization Exemptions ............................................................. 248 d.Limited General Discretionary Exemption ................................... 250

v. Alien Terrorist Removal Courts ...................................................... 252 vi.Mandatory Detention of “Suspected Terrorists” ............................. 252

6. Firm Resettlement .............................................................................. 253 7. Bars to Withholding Only .................................................................. 258

V. Discretionary Form of Relief .................................................................... 259 VI. Conclusion ................................................................................................ 263

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Chapter Three Protection Under the Convention Against Torture ............................................. 265

I. The Implementing Legislation ..................................................................... 267 A. Regulations .............................................................................................. 268 B. Possible Bars to Relief ............................................................................. 269 C. Judicial Review ....................................................................................... 269 D. Detention ................................................................................................. 269 E. Definitions ............................................................................................... 270 F. Number of Cases Granted ....................................................................... 270 G. Prior Procedures for Relief Under the Convention Against Torture ....... 270 H. Decisions Pre-Dating the Implementing Regulations ............................. 271

II. Seeking Protection Under the Convention Against Torture in the United States ............................................................................................. 272

A. Definition of Torture ............................................................................... 274 1. Infliction of Severe Pain or Suffering ................................................ 275 2. Intentional Act ................................................................................... 278 3. Under the Custody or Control of the Offender .................................. 282 4. For a Broad Array of Wrongful Purposes .......................................... 283 5. By or Sanctioned By a Public Official ............................................... 283

i. Public Official or Person Acting in Official Capacity ..................... 283 ii. Acquiescence ................................................................................... 285

6. Not Arising Out of Lawful Sanctions ................................................ 291 B. Nonrefoulement (Non-Return) Provision ................................................ 293

1. “More Likely Than Not” Standard .................................................... 294 2. Torture Only ...................................................................................... 296 3. Objective Only ................................................................................... 296 4. Prospective Only ................................................................................ 296 5. No Internal Relocation Option ........................................................... 297

C. Evidence to Support Claims for CAT Protection .................................... 298 1. Credibility .......................................................................................... 298 2. All Relevant Evidence ....................................................................... 301

D. No Bars to Protection Under the Convention Against Torture ............... 305 III. Types of Relief Available Under the Convention Against Torture .......... 306

A. Withholding of Removal Under the Convention Against Torture .......... 306 B. Deferral of Removal Under the Convention Against Torture ................. 307

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Chapter Four Proving the Case: Burdens, Standards, and Evidence ........................................ 309

I. Burden of Proof ............................................................................................ 309 A.Burden of Proof on the Applicant ............................................................ 310 B.The Shifting Burdens of Proof ................................................................. 315

II.Standards of Proof ........................................................................................ 317 A.Preponderance of the Evidence ................................................................ 317 B.Reasonable Possibility ............................................................................. 318 C.More Likely Than Not/Clear Probability ................................................. 319 D.Significant Possibility .............................................................................. 320 E.Clear and Convincing Evidence ............................................................... 321 F.To the Satisfaction of the Attorney General ............................................. 322

III. Evidentiary Standards ............................................................................... 322 A.Testimony and Credibility ....................................................................... 323

1.Demeanor .............................................................................................. 328 2.Inconsistencies and Omissions ............................................................. 329 3.False Documents and Misrepresentations ............................................. 336 4.Other Relevant Factors — Mental Health of the Applicant ................. 339 5.Other Relevant Factors — Cultural Differences ................................... 340 6.Frivolous Applications .......................................................................... 341

B.Corroboration ........................................................................................... 345 1.Evidence Specific to the Applicant ....................................................... 352 2.Country Conditions Reports and Articles ............................................. 355 3.Benefit of the Doubt ............................................................................. 358 4.Original Documents and Forensics Testing .......................................... 359

C.Evidence Presented by the Department of Homeland Security ............... 361 D.Administrative Notice .............................................................................. 362

IV.Conclusion .................................................................................................. 364 Chapter Five Hot Topics: Asylum Claims Based on Gender and Gang Violence .................. 365

I. Asylum Claims Based on Gender ................................................................ 367 A.Common Forms of Gender-Based Persecution........................................ 372

1.Female Genital Mutilation/Cutting ....................................................... 373 2.Rape and Sexual Violence .................................................................... 377

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3.Honor Killings ...................................................................................... 379 4.Forced Marriage .................................................................................... 381 5.Sex Trafficking and Forced Prostitution ............................................... 383 6.Gender-Specific Laws and Repressive Social Mores ........................... 391 7.Domestic Violence ................................................................................ 392

B.Particular Social Groups and Group Membership ................................... 399 C.Nexus ....................................................................................................... 409 D.Government Unable or Unwilling to Protect ........................................... 411 E.Internal Relocation ................................................................................... 413

II.Asylum Claims Based on Gang Violence .................................................... 417 A.Particular Social Groups and Membership .............................................. 418

1.Resisters of Gang Recruitment ............................................................. 424 2.Affluent or Wealthy Individuals ........................................................... 428 3.Prosecutorial Witnesses and Informants ............................................... 430 4.Former Gang Members ......................................................................... 433 5.Tattooed Youth or Tattooed Gang Members ........................................ 438 6.Women and Girls Labeled as Gang Property ....................................... 438 7.Family Members ................................................................................... 440 8.Individuals Who Actively Oppose Gangs ............................................ 443

B.Political Opinion ...................................................................................... 444 C.Religion .................................................................................................... 448 D.Nexus ....................................................................................................... 451

1.Nexus to a Political Opinion ................................................................. 452 2.Nexus to Moral, Religious Beliefs ........................................................ 458 3.Nexus to Membership in a Particular Social Group ............................. 460 4.Demonstrating Nexus in Situations of Widespread Violence .............. 461

E.Right to a Hearing on the Merits .............................................................. 462 Chapter Six Seeking Protection While Subject to Expedited Removal and Reinstatement of

Removal ................................................................................................................ 465 I. Expedited Removal and Credible Fear ......................................................... 467

A. Who is subject to expedited removal under INA §235? .......................... 467 1. Noncitizens Arriving at a Port of Entry with False or No

Documents ......................................................................................... 468

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2. Noncitizens Interdicted in International or U.S. Waters and Brought to the United States ............................................................. 469

3. Noncitizens Who Have Not Been “Admitted” or “Paroled” into the U.S. and Who Have Not Resided in the U.S. for Two Years or More .................................................................................................. 469

4. Individuals Paroled into the United States after April 1, 1997 .......... 472 B. Who is not subject to expedited removal? ............................................... 472

1. Cuban Citizens or Nationals Arriving at a Port of Entry or Apprehended Within 100 Miles of the Border .................................. 473

2. Pre–April 1, 1997 Parolees ................................................................ 473 3. Unaccompanied Minors ..................................................................... 474 4. Stowaways ......................................................................................... 476 5. Crewmembers .................................................................................... 478 6. Individuals Seeking Entry Under the Visa Waiver Program ............. 478 7. Noncitizens Paroled into the United States with Advance Parole ..... 478 8. Individuals with Additional Charges of Inadmissibility .................... 478 9. LPRs, Refugees, Asylees, and Others with Additional Protections .. 479

C. Withdrawal of Application for Admission .............................................. 479 D. Challenges to the Expedited Removal Order .......................................... 482 E. Judicial Review of Expedited Removal................................................... 482

1. Habeas Corpus Proceedings ............................................................... 483 2. Limitations on Declaratory, Injunctive, and Equitable Relief ........... 484 3. Prohibition on Certification of a Class Under Rule 23 ...................... 484 4. Challenges to Validity of the System ................................................ 484 5. Relief .................................................................................................. 484

F. Consequences of Expedited Removal ..................................................... 485 II. Administrative Removal Proceedings for Aggravated Felons .................. 485

A. Response to Form I-851, Notice of Intent to Issue a Final Administrative Deportation Order ........................................................... 486

B. Right to Request Withholding of Removal or Relief Under the Convention Against Torture .................................................................... 487

C. INA §240 Removal Proceedings ............................................................. 487 D. Judicial Review ....................................................................................... 487

III. How Expedited Removal Works in Practice ............................................. 488 A. Primary Inspection ................................................................................... 489

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B. Secondary Inspection ............................................................................... 489 1. No Right to Representation................................................................ 489 2. Record of Sworn Statement — Form I-867 A and B......................... 490 3. Final Order ......................................................................................... 496

C. Expression of Fear and Form M-444 ....................................................... 497 D. Detention ................................................................................................. 498 E. Credible Fear Standards and Procedures ................................................. 502

1. Rest Period ......................................................................................... 510 2. Location ............................................................................................. 510 3. Interviewers ....................................................................................... 511 4. Interview Procedures ......................................................................... 511 5. Role of Attorney, Representative, or Consultant ............................... 514 6. Interpretation ...................................................................................... 514 7. Dependents......................................................................................... 515 8. Confidentiality ................................................................................... 516 9. Withdrawals ....................................................................................... 517 10. Asylum Officer’s Credible Fear Decision ......................................... 517

F. Credible Fear Review by an Immigration Judge ..................................... 518 1. Standard of Review ............................................................................ 518 2. Procedures .......................................................................................... 518 3. Role of Attorney, Representative, or Consultant ............................... 519 4. Interpreters ......................................................................................... 520 5. Decision ............................................................................................. 520 6. No Appeal .......................................................................................... 521

G. Credible Fear Re-Interviews Prior to Departure...................................... 521 IV. Oversight of the Expedited Removal Process ........................................... 522

A. Quality Assurance ................................................................................... 522 B. Government Accountability Office Reports ............................................ 523 C. U.S. Commission on International Religious Freedom Report ............... 525 D. Nongovernmental Organizations ............................................................. 528 E. UNHCR ................................................................................................... 531

V. Reinstatement of Removal and Reasonable Fear ...................................... 533 A. Who is Subject to Reinstatement of Removal? ....................................... 535 B. Who is Not Subject to Reinstatement? .................................................... 535

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C. Determining Whether Reinstatement Applies ......................................... 538 D. Judicial Review of Reinstatement ........................................................... 541 E. Consequences of Reinstatement .............................................................. 543

VI. How Reinstatement of Removal Works in Practice .................................. 545 A. Reinstatement Proceedings Before DHS ................................................. 546 B. Challenging DHS’s Reinstatement Order................................................ 547 C. Expression of Fear ................................................................................... 550 D. Detention ................................................................................................. 551 E. Reasonable Fear Standards and Interview Procedures ............................ 552

1. Orientation ......................................................................................... 556 2. Scheduling of the Interview ............................................................... 556 3. Representation ................................................................................... 557 4. Confidentiality ................................................................................... 558 5. Testimony and Evidence .................................................................... 558 6. Interpretation ...................................................................................... 559 7. Record ................................................................................................ 560 8. Withdrawals ....................................................................................... 560 9. Decision ............................................................................................. 561

F. Withholding-Only Proceedings Before an Immigration Judge ............... 561 1. Master Calendar Hearing ................................................................... 563 2. Individual Hearing ............................................................................. 564

G. Reasonable Fear Review by an Immigration Judge ................................ 565 VII. Conclusion ................................................................................................ 567

Chapter Seven Affirmative Asylum Procedures ............................................................................ 569

I. Who is Eligible to Apply for Asylum Affirmatively? .................................. 570 A. Applicants in Removal Proceedings ........................................................ 571 B. Other Individuals Ineligible for the Affirmative Asylum Process .......... 572 C. Individuals Statutorily Ineligible to Apply for Asylum........................... 574

1. One-Year Filing Deadline .................................................................. 575 2. Previous Asylum Denial .................................................................... 577 3. Safe Third Country ............................................................................ 578

D. Dependents .............................................................................................. 579 II. Required Notices to Asylum and Withholding of Removal Applicants .. 581

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A. Notice of Right to Be Represented .......................................................... 582 B. Notice of Consequences of Filing a Frivolous Application .................... 582 C. Notice that Information May be Used to Initiate Removal Proceedings and

Satisfy the Government’s Burden of Proof ............................................. 584 D. Notice of Confidentiality ......................................................................... 584

III. What Are the Components of an Affirmative Asylum Application? ........ 585 IV. Where Should an Affirmative Asylum Application be Filed? .................. 593 V. What Happens After the Application is Filed? ......................................... 595

A. Initial Processing of Cases Filed with the USCIS Service Center .......... 595 B. Initial Processing of Cases Filed Directly with the Asylum Office ........ 596 C. Identity, Background, and Security Checks ............................................ 597 D. Scheduling of the Asylum Interview ....................................................... 598 E. Collection of A-Files ............................................................................... 601

VI. What Happens When the Applicant Arrives for the Asylum Interview? . 601 A. Check-In Procedures ............................................................................... 601 B. Identity Checks ........................................................................................ 602 C. Collection of Supplemental Evidence ..................................................... 603 D. Verification of Fulfillment of Fingerprint Requirements ........................ 604 E. Awaiting the Interview ............................................................................ 606

VII. What Happens During the Affirmative Asylum Interview? ..................... 607 A. Confidentiality ......................................................................................... 608 B. Interview Under Oath .............................................................................. 608 C. Interview of Dependents .......................................................................... 609 D. Interpreters ............................................................................................... 609 E. Applicants Unable to Testify on Their Own Behalf ................................ 613 F. Role of Attorney or Representative ......................................................... 614 G. Witnesses and Submission of Documents ............................................... 615 H. Structure and Content of Questioning ..................................................... 616 I. Note-Taking by the Asylum Officer ........................................................ 620 J. Conclusion of the Asylum Interview ....................................................... 621

VIII.What if the Applicant Fails to Appear at the Interview? ......................... 622 IX. What Happens Post-Interview? ................................................................. 626

A. Asylum Officer Research ........................................................................ 626 B. Discovery of Adverse Information After an Asylum Interview .............. 628

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C. Preparation and Review of the Decision ................................................. 628 D. Quality Assurance Procedures ................................................................. 631 E. Service of the Decision ............................................................................ 633

1. Approval ............................................................................................ 635 2. Denial ................................................................................................. 637 3. Referral .............................................................................................. 638

X. What If An Asylum Applicant Wants to Add a Dependent, Work, Travel, or Withdraw the Application During the Application Process? ... 640

A. Adding a Dependent After the Initial Filing ............................................ 641 B. Employment Authorization for Affirmative Asylum Applicants ............ 643 C. Departing the U.S. Before a Final Affirmative Asylum Decision ........... 644 D. Withdrawal Requests ............................................................................... 646

XI. What if the Applicant Wants to Challenge the Asylum Office Decision? ................................................................................................... 646

Chapter Eight Defensive Claims for Protection ............................................................................ 649

I. Where Do Defensive Proceedings Take Place? ........................................... 650 A. Hearings by Video ................................................................................... 651 B. Immigration Judges ................................................................................. 654 C. Jurisdiction .............................................................................................. 654 D. Backlogs .................................................................................................. 655

II. How Do Defensive Proceedings Begin? ................................................... 656 III. Who is Eligible to Apply for Defensive Protections? ............................... 660 IV. Required Notices to Asylum and Withholding of Removal Applicants .. 663

A. Notice of Right to Be Represented .......................................................... 663 B. Notice of Consequences of Filing a Frivolous Application .................... 663 C. Notice that Information May be Used to Initiate Removal Proceedings

and Satisfy the Government’s Burden of Proof....................................... 665 D. Notice of Confidentiality ......................................................................... 665

V. What Are the Components of a Defensive Application for Protection? .. 666 VI. What Are the Procedures for Filing a Defensive Application for

Protection? ................................................................................................ 676 VII. What Rights Does a Noncitizen Have in Immigration Court? .................. 680

A. Fourth Amendment Rights ...................................................................... 680

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B. Right to Due Process ............................................................................... 682 C. Right Not to Incriminate Oneself ............................................................ 686 D. Right to Representation ........................................................................... 686 E. Right to a Competent Interpreter ............................................................. 691 F. Right to Present and Examine Evidence and to Cross-Examine

Witnesses ................................................................................................. 692 G. Right to Appeal ........................................................................................ 695 H. Right to Confidentiality ........................................................................... 695

VIII.What Special Protections Are Available in Immigration Court? ............ 700 A. Children ................................................................................................... 700 B. Mental Incompetence .............................................................................. 703

IX. What Happens at the Master Calendar Hearing? ...................................... 711 A. Before the Master Calendar Hearing ....................................................... 713 B. At the Master Calendar Hearing .............................................................. 717

X. What Happens After the Application is Filed? ......................................... 725 A. Department of State Comments ............................................................... 726 B. Initial Processing of the Application with USCIS ................................... 726 C. Biometrics Collection .............................................................................. 727 D. Change of Address .................................................................................. 730 E. Motions and Inquiries .............................................................................. 731 F. Discovery ................................................................................................. 736 G. Evidentiary Filings and Witness Lists ..................................................... 740

1. Supplemental Evidence Filings ......................................................... 741 i. Defective Filings .............................................................................. 746 ii. Authentication of Documents .......................................................... 747

2. Witness Lists ...................................................................................... 749 3. Filing Deadlines ................................................................................. 752 4. DHS Evidentiary Filings .................................................................... 754

H. Pre-Hearing Conferences and Statements ............................................... 754 I. Preparing the Respondent’s and Witnesses’ Testimony .......................... 755

XI. What Happens at the Individual Hearing? ................................................ 756 A. Preliminary Matters and the Marking of Evidence ................................. 757 B. Opening Statements ................................................................................. 761 C. Direct, Cross, and Re-Direct Examinations............................................. 762

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D. Closing Arguments .................................................................................. 767 E. Decision and Order .................................................................................. 767

XII. What Happens if an Applicant is Detained but Granted Relief?............... 770 XIII.How Can An Applicant Challenge an IJ’s Decision? .............................. 772 XIV.What if the Respondent Fails to Appear for a Hearing? .......................... 774

A. Motion to Reopen Within 180 Days of an In Absentia Order ................. 776 B. Motion to Reopen Any Time After the In Absentia Order...................... 777

Chapter Nine Detention of Asylum-Seekers ................................................................................. 781

I. How Do Asylum-Seekers End Up in Detention? ......................................... 787 II.Who is Eligible for Release? ........................................................................ 790

A.Individuals Found to Have a Credible Fear ............................................. 791 B.Non-Criminals Who Have Made a Lawful or Illegal Entry or Who Fall

Within the Definition of “Arriving Alien” .............................................. 792 C.Individuals Who Completed Their Criminal Sentences Prior to

October 9, 1998 ....................................................................................... 792 D.Individuals with Final Orders of Removal Who Cannot Be Returned to

Their Home Countries ............................................................................. 792 E.Children .................................................................................................... 797

III. Who is Not Eligible for Release? .............................................................. 800 A.Individuals in Expedited Removal ........................................................... 801 B.Individuals Subject to Criminal Grounds of Deportation or

Inadmissibility ......................................................................................... 801 C.Terrorists .................................................................................................. 803 D.Individuals with Final Orders of Removal .............................................. 804

IV. Legal Standards and Procedures for Seeking Release .............................. 805 A.Requests for Release (or Parole) to ICE .................................................. 808

1.Requests for Release by Those Apprehended at the Border or a Port of Entry .............................................................................................. 810

2 Requests for Release by Those Granted Relief but Who Have Final Orders of Removal ............................................................................ 815

B.Bond ......................................................................................................... 817 1.Initial Custody Determination .............................................................. 818 2.Review of ICE Custody and Bond Determinations .............................. 819 3.Bond Motions ....................................................................................... 820

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4.Bond Redetermination Hearings ........................................................... 821 5.Appeal of the IJ’s Bond Decision ......................................................... 825 6.Request for Subsequent Bond Redetermination ................................... 826

V.Removal Proceedings in Detention .............................................................. 827 A.DHS’s Responsibilities ............................................................................ 827 B.Legal Orientation Program ....................................................................... 829 C.Hearings by Video or Telephone Conference .......................................... 830 D.Detention of Juveniles ............................................................................. 833

VI.Conclusion .................................................................................................. 834 Chapter Ten Legal Standards and Procedures for Children .................................................... 835

I. Special Legal Standards ............................................................................... 837 A.Harm Rising to the Level of Persecution ................................................. 841 B.Well-Founded Fear of Future Persecution ............................................... 844 C.Nexus to a Protected Ground ................................................................... 845 D. Government Actor or Groups the Government is Unable or Unwilling

to Control ................................................................................................. 853 E.Grounds of Ineligibility and Bars to Relief .............................................. 853

1.Ineligibility Grounds ............................................................................. 854 i.Safe Third Country ............................................................................ 854 ii.One-Year Filing Deadline ................................................................ 855 iii.Previous Asylum Denial .................................................................. 857

2.Statutory Bars to Asylum ...................................................................... 858 II.Application Procedures for Children ........................................................... 861

A.Priority Processing ................................................................................... 863 B.Capacity of a Child to Participate in the Application Process ................. 865 C.Affirmative Asylum Procedures for Children .......................................... 868

1.Asylum Interviews ................................................................................ 869 2.Affirmative Asylum Decisions ............................................................. 875

D.Defensive Asylum Procedures for Children ............................................ 876 1.Appropriate Courtroom Setting ............................................................ 877 2.Appropriate Courtroom Procedures ...................................................... 879 3.Facilitation of Representation ............................................................... 881 4.Other Regulatory Protections................................................................ 882

xxxiv AILA’S ASYLUM PRIMER, SEVENTH ED.


III.Unaccompanied Alien Children Applying for Asylum .............................. 884 A.The Flores Settlement .............................................................................. 886 B.Homeland Security Act of 2002 ............................................................... 886 C.The Trafficking Victims Protection Reauthorization Act of 2008 ........... 887 D.Processing of UACs Upon Apprehension by CBP or ICE ...................... 887

1.Not Subject to Expedited Removal ....................................................... 888 2.Contiguous vs. Non-Contiguous Countries .......................................... 889 3.ORR Custody ........................................................................................ 891 4.Reunification with Family Members or Sponsors ................................ 892 5.Appearances Before the Immigration Courts ....................................... 894 6.Asylum Applications by UACs ............................................................ 895

i.Initial Jurisdiction of USCIS ............................................................. 896 ii.Defensive Filings by UACs .............................................................. 897 iii.Affirmative Filings by UACs .......................................................... 897 iv.Initial Processing by USCIS ............................................................ 898 v.UAC Determination by the Asylum Office ...................................... 899 vi.Notifying the Department of Health and Human Services of the

UAC ................................................................................................. 902 vii.USCIS Asylum Office Interview .................................................... 903 viii.USCIS Asylum Decision ............................................................... 904

IV.Detention of Children ................................................................................. 905 A.Apprehension ........................................................................................... 910 B.Accompanied vs. Unaccompanied Children ............................................ 911 C.Release from DHS Custody ..................................................................... 911

V.In-Country Refugee Processing for Children .............................................. 914 VI.Children as Derivatives .............................................................................. 916

A.Definition of “Child” ............................................................................... 916 B.Accompanying Versus Following to Join ................................................ 917 C.Existence of Parent-Child Relationship ................................................... 918 D.Aged-Out Children .................................................................................. 919 E.Loss of Derivative Status ......................................................................... 920

VII. Conclusion ................................................................................................ 921 Chapter Eleven

DETAILED TABLE OF CONTENTS xxxv


Administrative Review ........................................................................................... 923 I. Appeals to the Board of Immigration Appeals ............................................. 923

A.Jurisdiction ............................................................................................... 925 B.Who Can File an Appeal? ........................................................................ 927 C.Scope and Standard of Review ................................................................ 928 D.Automatic Stay of Removal ..................................................................... 930 E.Procedures for Appeal of an IJ Order ....................................................... 931

1.Notice of Right to Appeal ..................................................................... 931 2.Timing of Appeal .................................................................................. 932 3.Where to File the Appeal ...................................................................... 933 4.Preparing the Appeal and Avoiding Summary Dismissal .................... 934

i.Filing Fee ........................................................................................... 935 ii.EOIR-26, Notice of Appeal .............................................................. 935 iii.Entry of Appearance ........................................................................ 936 iv.Service on DHS ............................................................................... 937 v.Form EOIR-33/BIA, Change of Address ......................................... 937

5.Initial BIA Processing of the Appeal .................................................... 938 6.Submission of Appeal Briefs ................................................................ 940 7.BIA Review .......................................................................................... 943

i.Affirmances Without Opinion ........................................................... 944 ii.Single Member Decisions ................................................................. 946 iii.Three-Member Panel Decisions ...................................................... 948 iv.En Banc Decisions ........................................................................... 948

8.Oral Argument ...................................................................................... 949 9.Withdrawal of Appeal ........................................................................... 950 10. Status Inquiries with the BIA ............................................................. 951 11. Motions Before the BIA .................................................................... 952 12. Identity, Law Enforcement, or Security Investigations or

Examinations ..................................................................................... 954 13. Issuance of the BIA Decision ............................................................ 954

F.Interlocutory Appeals ............................................................................... 956 G.Bond Appeals ........................................................................................... 956

II. Motions to Reopen and Reconsider .......................................................... 957 A.Motions to Reopen ................................................................................... 958 B.Motions to Reconsider ............................................................................. 958

xxxvi AILA’S ASYLUM PRIMER, SEVENTH ED.


C.Who May Make a Motion to Reopen or Reconsider?.............................. 959 D.Jurisdiction ............................................................................................... 960 E.Standard of Review and Burden of Proof ................................................ 960 F.Numerical Limitations .............................................................................. 961 G.Time Limitations ...................................................................................... 961 H.Exceptions to the Time and Numerical Limitations ................................ 962

1.Motion to Reopen Sua Sponte .............................................................. 963 2.Joint Motion to Reopen ........................................................................ 963 3.Motion to Reopen Based on Changed Country Conditions .................. 964 4.Motion to Reopen In Absentia Order Based on Lack of Notice ........... 966 5.DHS Motions to Reopen ....................................................................... 968 6.Ineffective Assistance of Counsel and Equitable Tolling ..................... 969

I. Contents of a Motion to Reopen or Reconsider ........................................ 971 J. Stays of Removal ...................................................................................... 973 K.Replies to Motions ................................................................................... 973 L.Departure from the United States ............................................................. 974 M.Effect of Motions to Reopen or Reconsider on Appeals ......................... 975 N.Rulings on Motions .................................................................................. 975

III. Conclusion ................................................................................................ 976 Chapter Twelve Judicial Review ....................................................................................................... 979

I. Jurisdiction Over Petitions for Review ........................................................ 980 A.Bars to Judicial Review ........................................................................... 981

1.Negative Credible Fear Determinations ............................................... 982 2.Noncitizens Convicted of Certain Crimes ............................................ 982 3.Reinstated Orders of Removal .............................................................. 982

B.Restrictions on Judicial Review ............................................................... 982 1.Safe Third Country ............................................................................... 983 2.One-Year Filing Deadline ..................................................................... 983 3.Previous Asylum Denial ....................................................................... 984 4.Terrorism-Related Bars to Eligibility for Relief ................................... 984 5.Expedited Removal Determinations ..................................................... 985 6.Discretionary Determinations by the IJ or BIA .................................... 985

C.Questions of Law and Constitutional Claims .......................................... 986

DETAILED TABLE OF CONTENTS xxxvii


1.Chevron Deference ............................................................................... 988 2.Brand X Deference ............................................................................... 989 3.Application of Chevron and Brand X in the Immigration Context ....... 990

II.Scope and Standard of Review .................................................................... 991 III.Procedures for Filing a Petition for Review ............................................... 992

A.When to File............................................................................................. 992 B.Where to File ............................................................................................ 995 C.What to File .............................................................................................. 995 D.Whom to Sue and Whom to Serve ........................................................... 997 E.Attorney Admission and Entry of Appearance ........................................ 997

IV.Stays of Removal ........................................................................................ 998 V.Termination of Voluntary Departure ......................................................... 1001 VI.Post-Filing Procedures .............................................................................. 1002

A.Service of the Petition ............................................................................ 1002 B.Issuance of Administrative Record and Briefing Schedule ................... 1002 C.Mediation ............................................................................................... 1002 D.Preparation and Filing of the Administrative Record ............................ 1002 E.Briefs ...................................................................................................... 1003 F. Oral Argument ............................................ Error! Bookmark not defined. G. Judgment and Final Mandate ...................... Error! Bookmark not defined.

Chapter Thirteen Benefits for Asylum-Seekers and Asylees ........................................................... 1009

I. Benefits While the Application is Pending ................................................ 1009 A.Employment Authorization .................................................................... 1010

1.Who is Eligible for an EAD? .............................................................. 1010 2.When Can the EAD Application be Submitted? ................................ 1011 3.What Should be Filed? ........................................................................ 1018 4.Where Should the EAD Application be Filed? ................................... 1020 5.How is an EAD Application Processed? ............................................ 1021 6.What if the EAD Expires Before the I-589 is Adjudicated? ............... 1022 7.Is an EAD Still Valid After an I-589 is Denied? ................................ 1023

B.Social Security Cards ............................................................................. 1024 C.Federal Individual Tax ID Numbers ...................................................... 1025 D.Advance Parole to Travel for Affirmative Applicants ........................... 1026

xxxviii AILA’S ASYLUM PRIMER, SEVENTH ED.


II.Immigration Benefits for Those Granted Protection .................................. 1029 A.Right to Remain in the United States ..................................................... 1031 B.Evidence of Status .................................................................................. 1031 C.Employment Authorization .................................................................... 1033

1.EADs for Asylees ............................................................................... 1034 2.EADs for Those Granted Withholding of Removal ........................... 1037 3.Deferral of Removal under the CAT .................................................. 1039

D.Social Security Card .............................................................................. 1042 E.Refugee Travel Document ..................................................................... 1044 F.Derivative Asylum Status for Family Members ..................................... 1047

1.Who May Qualify as a Derivative? .................................................... 1048 2.Accompanying Spouses and Children ................................................ 1052 3.Following-to-Join Spouses and Children ............................................ 1055

G.Lawful Permanent Resident Status ........................................................ 1060 III.Responsibilities of Those Granted Protection .......................................... 1061

A.Change of Address ................................................................................. 1061 B.Selective Service Registration ............................................................... 1061

IV.Public Benefits .......................................................................................... 1062 V.Conclusion ................................................................................................. 1066

Chapter Fourteen Termination of Status .......................................................................................... 1067

I. Termination of Asylum and Withholding of Removal ............................. 1067 A. Grounds for Terminating Asylum ........................................................ 1068 B. Grounds for Rescinding a Grant of Asylum ......................................... 1069 C. Grounds for Terminating Withholding of Removal ............................. 1069 D. Procedures for Termination by USCIS ................................................. 1070 E. Procedures for Rescission by USCIS ................................................... 1072 F. Procedures for Termination by an IJ or the BIA .................................. 1074

II. Termination of Derivative Asylum Status ............................................. 1077 III. Termination of CAT Protection ............................................................. 1077

A. Termination of Withholding of Removal under CAT .......................... 1077 B. Termination of Deferral of Removal under CAT ................................. 1078

1. Motion for Hearing on Termination ............................................... 1078 2. Notice of Termination Hearing ....................................................... 1080

DETAILED TABLE OF CONTENTS xxxix


3. Department of State Comments ...................................................... 1080 4. Hearing on Termination .................................................................. 1080 5. Termination at the Request of the Individual ................................. 1082 6. Diplomatic Assurances ................................................................... 1082

IV. Termination of Refugee Status ............................................................... 1083 V. Conclusion ............................................................................................. 1084

Chapter Fifteen Adjustment of Status ............................................................................................ 1085

I. Legal Standards for the Adjustment of Status of Asylees .......................... 1085 A.Physical Presence ................................................................................... 1086 B.Definition of Refugee ............................................................................. 1086 C.Firm Resettlement .................................................................................. 1087 D.Application for Adjustment of Status .................................................... 1087 E.Admissibility .......................................................................................... 1089

II.Legal Standards for the Adjustment of Status of Refugees ....................... 1089 III. Adjustment of Status of Derivative Asylees ........................................... 1093

A.Principal Asylee No Longer a Refugee Under INA §101(a)(42) .......... 1094 B.Death of Principal Asylee ...................................................................... 1095 C.Derivative Asylees Ineligible for Adjustment of Status ........................ 1095 D.Nunc Pro Tunc Asylum Applications .................................................... 1097

IV. Adjustment of Status Applications for Asylees and Refugees ................ 1100 V.INA §209(c) Waivers for Asylees and Refugees ....................................... 1105 VI. Conclusion .............................................................................................. 1109

Chapter Sixteen Related Forms of Relief ........................................................................................ 1111

I. T and U Visas for Victims of Trafficking and Crimes ............................... 1112 A.T Visas ................................................................................................... 1112 B.U Visas ................................................................................................... 1116

II.Special Immigrants .................................................................................... 1121 A.Special Immigrant Juvenile Status ......................................................... 1121 B.Special Immigrant Iraqi and Afghan Translators or U.S. Government

Employees ............................................................................................. 1123 III. Temporary Protected Status .................................................................... 1124

xl AILA’S ASYLUM PRIMER, SEVENTH ED.


IV. Humanitarian Parole ............................................................................... 1128 V. ABC Settlement ....................................................................................... 1131 VI. Nicaraguan Adjustment and Central American Relief Act ..................... 1133 VII.Haitian Refugee Immigration Fairness Act ............................................. 1136 VIII.Cuban Adjustment Act ........................................................................... 1138

APPENDICES

Appendix 1 –Intake and Interviewing 1A – Interviewing Techniques ................................................................................ 1143 1B – Sample Intake Form ....................................................................................... 1147 1C – Checklist for Bars to Asylum and Withholding of Removal ......................... 1151 1D – Sample Questions/Topics for Applicant Interviews ...................................... 1153 Appendix 2 – The Asylum Application 2A – Form I-589, with instructions ........................................................................ 1157 2B – Checklist for Asylum Application (Form I-589) ........................................... 1183 2C – Practice Pointer: Question-By-Question Guidance on Completing the Form

I-589, Application for Asylum and for Withholding of Removal .................... 1187 2D – Sample Declaration ........................................................................................ 1203 Appendix 3 – Supporting Documentation 3A – Checklist for Supporting Documentation ...................................................... 1213 3B – Witness Affidavit Template ........................................................................... 1217 3C – Sample Expert Affidavits (Country Conditions; Medical) ............................ 1219 3D – Certificate of Translation ............................................................................... 1229 3E – Case Theory and Evidence Matrix ................................................................. 1231 Appendix 4 – Affirmative Applications 4A – Sample Cover Letter to USCIS Service Center ............................................. 1233 4B – Checklist for Preparing for the Asylum Interview ......................................... 1235 4C – Interview Guidance for Applicants ................................................................ 1237 4D – Sample Closing Statement ............................................................................. 1239 4E – Asylum Office Guide – Best Practices ........................................................... 1245 Appendix 5 – Defensive Applications 5A – EOIR Removal Proceedings Process ............................................................. 1261 5B – Steps in the Preparation of an Immigration Court Case ................................. 1263 5C – Sample I-213, Record of Deportable/Inadmissible Alien .............................. 1269 5D – Sample I-862, Notice to Appear .................................................................... 1273

DETAILED TABLE OF CONTENTS xli


5E – Instructions for Submitting Form I-589 in Immigration Court and for Providing Biometric and Biographic Information to USCIS, along with Sample Cover Letter to USCIS Service Center ................................................ 1275

5F – Sample Motion and Sample Brief .................................................................. 1277 5G – Sample Index of Exhibits for I-589 Filing ..................................................... 1321 5H – Practice Pointers on Direct and Cross-Examination of the Asylum

Applicant .......................................................................................................... 1329 5I – Testimony Tips for the Respondent and Witnesses ........................................ 1337 5J – Objections in Immigration Court .................................................................... 1339 5K – Understanding Withholding of Removal ....................................................... 1343 5L – Flowchart of Expedited Removal/Credible Fear Process ............................... 1351 Appendix 6 – Detained Asylum-Seekers 6A – Flowchart of Immigration Detention ............................................................. 1353 6B – Sample Release Request ................................................................................ 1355 6C – Sample Bond Motion ..................................................................................... 1357 Appendix 7 – Child Asylum-Seekers 7A – Flowchart of Unaccompanied Alien Children’s Apprehension, Processing,

and Custody ...................................................................................................... 1367 7B – Child-Sensitive Interviewing Techniques ...................................................... 1369 Appendix 8 – Administrative and Judicial Review 8A – Form EOIR-26 and Instructions .................................................................... 1371 8B – Sample BIA Brief ........................................................................................... 1377 8C – Sample Petition for Review ........................................................................... 1413 Appendix 9 – Benefits for Asylum-Seekers and Those Granted Protection 9A – Form I-765 and Instructions .......................................................................... 1415 9B – Form I-131 and Instructions ........................................................................... 1429 9C – Form I-730 and Instructions ........................................................................... 1447 9D – Benefits Available to Asylees and Refugees ................................................. 1457 9E – Asylee Eligibility for Resettlement Assistance .............................................. 1463 Appendix 10 – Comparative Charts 10A – Affirmative and Defensive Asylum Process Chart ...................................... 1469 10B – A Comparison of the Forms of Protection Available Under U.S. Law ....... 1475 10C – Temporary Protected Status ......................................................................... 1477 10D – Benefits Comparison Chart .......................................................................... 1479 Appendix 11 – Resources 11A – Contact Information ..................................................................................... 1481 11B – Useful Websites ........................................................................................... 1499

xlii AILA’S ASYLUM PRIMER, SEVENTH ED.


11C – Recommended Sources, Texts, and Tools ................................................... 1505