Immigration andNationality Law

Cases and Materials

Fourth Edition

Richard A. BoswellPROFESSOR OF LAW

UNIVERSITY OF CALIFORNIA

HASTINGS COLLEGE OF THE LAW

CAROLINA ACADEMIC PRESS

Durham, North Carolina

Contents

Acknowledgments xix

Chapter 1 • Introduction 3Immigration Reform 3Restructuring of INS into the Department of Homeland Security 5Division of Responsibilities between the Departments of State and

Homeland Security 6A Multitude of Government Agencies 6

Department of Homeland Security 6Chart 1 U.S. Department of Homeland Security 7

Department of Justice's Executive Office for Immigration Review 8Department of Labor 8Department of State 9Public Health Service 9

A Historical Perspective 9The Tarnished Golden Door: Civil Rights Issues in Immigration 10Questions 16

Toward a Global View of the "Immigration Problem" 16Graph 1 Migration Rate per 1,000 17Graph 2 Net Immigration per 1,000 18Graph 3 Refugees as a Percentage of Population 19Graph 4 Refugees by Country of Destination in Thousands 19Graph 5 (Map) Colombian Civil War 20Graph 6 (Map) War in Iraq 21Graph 7 Foreign Remittance as a Percentage of GNP 21

Sharon Stanton Russell, International Migration: Global Trendsand National Responses 22

R. George Wright, Federal Immigration Law and the Casefor Open Entry 31

Glossary of Commonly Used Terms in Immigration Law 45

Chapter 2 • Immigrants' Rights in the Social Context 53A. Employment Discrimination against Immigrants 53

1. Title VII of the Civil Rights Act of 1964 542. Section 1981 and Employment Discrimination 553. Unfair Immigration-Related Employment Practices 55

In re Charge ofZeki Yeni Komsu v. Mesa Airlines 57Notes 66

viii CONTENTS

B. Education 68James Plyer, Superintendent of the Tyler Independent School District

and Its Board of Trustees, et al. v. /. and R. Doe, et al. 69Notes 75

C. Access to Public Benefits 76John O. Graham, Commissioner, Department of Public Welfare,

State of Arizona v. Carmen Richardson 77F. David Mathews, Secretary of the Department of Health, Education,

and Welfare v. Santiago Diaz et al. 82Notes 86Federal Welfare Restrictions after 1996 87

D. State Laws Affecting Foreigners in the United States 88California Ballot Proposition 187 89League of United Latin American Citizens, et al. v. Pete Wilson, et al. 93Notes 106

1. Recent State Laws Enacted against Foreigners in the United States 107Pedro Lozano, et al. v. City ofHazleton 108

2. The Real ID Act of 2005 122

Chapter 3 • Admissibility and Removal 125A. Substantive Grounds for Inadmissibility 126

1. Economic 1272. Political, Foreign Policy and Security 1283. Health 1304. Criminal 1315. Quasi-Criminal or Moral 1326. Miscellaneous 133

B. The Process of Determining Admissibility 1351. The "Removal" Hearing 137

C. The Power to Determine Who Is Admissible 137Chae Chan Ping v. United States 137The Chinese Exclusion Case 137Notes 149Shaughnessy v. United States ex rel. Mezei 150Notes 153

1. Parole of Persons into the United States 154D. Determining Admissibility for Detention or Removal 155

Neil Clark v. Sergio Suarez Martinez 156E. Expedited Removal—Removal without Hearing 163

1. The Application of Expedited Removal 164American Immigration Lawyers Ass'n v. Janet Reno, Att'y Gen. 166

F. The Significance of Admission into the United States 1801. The Meaning of "Entry" and "Admission" 180

G. The Reentry Doctrine 181Michael Landon, District Director, INS v. Maria Antonieta Plasencia 181Notes 187Some Procedural Questions 188Some Final Substantive Questions 188

H. Procedures to Determine Admissibility—Flow Charts 190

CONTENTS ix

Chart 1 General Procedure to Determine Admissibility 190Chart 2 Removal Proceedings (Admission) 191Chart 3 Expedited Removal (No Persecution Claim) 191Chart 4 Expedited Removal (Persecution Claim) 192Chart 5 Expedited Removal (Claim of Status) 192

I. Problem Exercises 193Exercise 1 193Exercise 2 194Exercise 3 195Exercise 4 196

Chapter 4 • Removal after Admission 197A. Introduction 197B. Substantive Grounds of Deportability and Waivers 199C. Removal of "Foreign" Terrorists 202D. Expedited Removal of Aggravated Felons 203E. An Overview of Removal Hearing Procedures 204

Jack Wasserman, Practical Aspects of Representing an Alien ata Deportation Hearing 204

Note 2071. Detention or Release 2082. Place for "Removal" 209

F. The Burden of Proof in Removal Proceedings 210Elizabeth Rosalia Woodby v. Immigration and Naturalization Service

Joseph Sherman v. Immigration and Naturalization Service 210Notes 213

G. The Burden of Proof Applied 214Matter of Vivas 214

H. The Evolution of Search and Seizure Law 216United States v. Felix Humberto Brignoni-Ponce 216Note 223United States v. Ralph Arvizu 224

1. Smuggling Operations 2292. The Warrant Requirement 230

Blackie's House of Beef, Inc. v. LeonelJ. Castillo, Commissionerofthel.N.S. 230

3. Search or Seizure? 241Immigration and Naturalization Service, et al. v. Herman

Delgado, etal. 241Notes 251

I. The Exclusionary Rule 253Immigration and Naturalization Service v. Adan Lopez-Mendoza, et al. 253Notes 266

1. Special Registration — Post 9/11 Enforcement 268J. Removal Procedure 269

Chart 1 Removal Proceedings (Timeline) 269Chart 2 Removal Procedure and Burdens of Proof 269

Procedural Questions 270K. Employer Sanctions 272

x CONTENTS

1. Employer Sanctions — Extending the Enforcement Powers of DHS 272a. Covered Employees 273b. Verification Requirements 274c. Enforcement Procedures 276Collins Foods Int'l, Inc. v. Immigration and Naturalization Service 277

L. Employment Authorization 2838 C.F.R. § 274a. 12 283Notes 289Rogelio Gomez-Arauz v. D. GeneMcNary, Comm'r. I.N.S., etal. 291

M. Problem Exercises 295Exercise 1 295Exercise 2 295Exercise 3 295Exercise 4 296

Chapter 5 • Protections from Harm 297A. Protecting Refugees with Parole 298B. Asylum Procedure 300

Chart 1 Affirmative Asylum Application 3021. Asylum Applications as a Defense to Removal 302

Chart 2 Defensive Asylum Claim 303C. Refugee Procedure 304

Chart 3 Refugee Processing 304D. Credibility and the Presentation of Asylum Claims 304

Karen Musalo, Credibility and Burden of Proof in Asylum Claimsafter the Board of Immigration Appeals' Four 1998 Decisions 305

Notes 314E. Restriction on Removal—Burden of Proof 315

8 U.S.C. § 1231(b)(3), Sec. 241(b)(3) 315Immigration and Naturalization Service v. Predrag Stevic 315

Chart 4 Restriction on Removal Flow Chart 321F. Asylum 321

Immigration and Naturalization Service v. Luz MarinaCardoza-Fonseca 321

Notes 332G. The Scope of Protection: Where Does the Statute Apply? 334

Chris Sale, Acting Comm'r, INS, et al. v. Haitian CentersCouncil, Inc., et al. 334

Notes 347H. Grounds of Persecution—Establishing Nexus 349

United Nations High Commissioner for Refugees, Handbook onProcedures for Determining Refugee Status 350

Immigration and Naturalization Service v. Jairo JonathanElias-Zacarias 353

I. Gender-Based Claims and Social Group 357Karen Musalo, The Developing Jurisprudence of Gender-Based Claims 357Note 363Olimpia Lazo-Majano v. Immigration and Naturalization Service 363Note 366

CONTENTS xi

In re Fauziya Kasinga 366Notes 379In re R-A- 380Notes 406Francis Gatimi, et al. v. Eric H. Holder, Atty Gen'l 409Notes 414

J. Statutory Bars to Relief 416Mamadou Diallo v. Ashcroft 416Notes 422Immigration and Naturalization Service v. Juan Anibal

Aguirre-Aquirre 423K. Temporary Protected Status and Extended Voluntary Departure 429

Hotel & Rest. Employees Union, Local 25, et al. v. WilliamFrench Smith, Attorney General, et al. 431

Notes 435L. Protection under the Convention against Torture 437

Li Chen Zheng, aka Zheng Li Chen v. John Ashcroft, Attorney General 438Note 447

M. Problem Exercise 447

Chapter 6 • Persons Coming to the U.S. Temporarily—Nonimmigrants 449A. Premium Processing Fee 450B. Categories of Nonimmigrant Visas 450

1. Foreign Government Officials (Diplomatic Personnel)—A Visas 4502. Visitors—B Visas 4513. Persons in Transit or Traveling without a Visa (TWOV)—C Visa 4514. Crew Members—D Visas 4525. Treaty Traders or Investors—E Visas 4526. Students—F Visas 4537. Representatives to or Employees of International

Organizations—G Visas 4548. Temporary Workers—H Visas 4549. Media Representatives—I Visas 457

10. Exchange Visitors—J Visas 45711. Fiancees or Fiances of U.S. Citizens—K Visas 45812. Intracompany Transferees—L Visas 45813. Vocational Students—M Visas 45814. Extraordinary Ability in Arts and Science—O Visas 45915. Athletes and Performing Artists—P Visas 45916. International Cultural Exchange Program—Q Visas 46017. Religious Occupations—R Visas 46018. Informants Against Criminal or Terrorist Organizations—S Visas 46119. North American Free Trade Agreement—TN and Other Visas 46120. Victims of Severe forms of Trafficking in Persons—T Visa 46221. Humanitarian/Material Witness—UVisa 46222. Spouse and Children of Certain Permanent Residents—V Visas 462

C. Nonimmigrant Visa Procedure 463Chart 1 Overseas Visa Applicant 463Chart 2 Applicant Seeking Extension and Change of Status 464

xii CONTENTS

Chart 3 Applicant's Request for Change or Extension ofStatus Is Denied 464

Chart 4 Nonimmigrant Visa Chart 465D. Pleasure Visa (B-2) 467

Matter ofHealy and Goodchild 467Notes 470

1. Visa Waiver Program 472E. Study Visas (F, J and M) 473

Matter of Yazdani 473F. Business Visas (B-l, E) 476

Jose Garavito, et al. v. Immigration and Naturalization Service 476Notes 480Matter ofNago 480Notes 482

G. Work Visas (H, L) 4841. Temporary Workers (H visas) 484

Hong Kong T. V. Video Program, Inc. v. David N. Ilchert,District Director, I.N.S. 484

Notes 489Matter of St. Pierre 490Matter of Artee, Corp. 491

2. Intracompany Transferees (L Visas) 493Matter ofChartier 493Matter of Siemens Medical Systems, Inc. 496

H. Limitations on Status 4981. Extension of Status 498

Egil D. Lauvik v. Immigration and Naturalization Service 498Notes 502

2. Change of Status 502Lun Kwai Tsui v. Attorney General of the United States 502Notes 505Presumption of Immigrant Intent 506

3. Maintenance of Status 507Khalid Mahmood v. Raymond J. Morris, District Director, INS 507Note 508

I. Revocation of Nonimmigrant Visas 509Chart 5 Nonimmigrant Visa Flow Chart 509

8U.S.C. §1201(i), Sec. 221(i) 509Nikolaas "Kallie" Knoetze v. Dep't of State 510Notes 513

J. Problem Exercises 514Exercise 1 514Exercise 2 514Exercise 3 514

Chapter 7 • Family-Based Immigrants 517A. Immigrants Admitted without Numerical Limits 519B. Immigrants Subject to Numerical Limits 520C. Allocation of Visas 521

CONTENTS xiii

Refugio Silva, et al. v. Griffin B. Bell, United States AttorneyGeneral, etal. 521

Notes 528D. Definition of "Child" 530

8 U.S.C. § 1101(b), Sec. 101(b) 5301. Child Status Protection Act 5312. Constitutional Issues 531

Ramon Martin Fiallo, etc., et al. v. Griffin B. Bell, AttorneyGeneral of the United States 531

Notes 5403. Adoption 541

Karen Yuen Fong Young v. Janet Reno 541Matter of Garcia-Rodriguez 547Kuli Haapai Kaho, et al. v. David N. Ilchert, District Director,

Immigration and Naturalization Service 5484. Stepchildren 555

Matter of McMillan 555Notes 556

5. "Legitimacy" 557Matter of Vizcaino 557Note 560

6. Orphans 561Matter of Greenwood 561

7. Filial Relationships 563Matter of Mahal 563

E. Spousal Relationships 5641. The Definition of "Marriage" 564

Matter ofMcKee 5642. Restrictions on Immigration Benefits Notwithstanding the

Existence of a Marriage 566Immigration and Marriage Fraud Amendments of 1986 566Paul and Mona Anetekhai v. Immigration and Naturalization Service 567Notes 570Presumptions of Fraud 571Matter ofPatel 572Notes 580

F. Exemption from the Petition Requirement 581G. Procedural Flow Charts 582

Chart 1 Spousal Relation Flow Chart 582Chart 2 Child-Parent Relation Flow Chart 583

H. Problem Exercises 583Exercise 1 583Exercise 2 584

Chapter 8 * Employment-Based Immigrants 585A. Labor Certification Requirements 590

Chart 1 Visa Office Bulletin (August, 2009) 591Chart 2 Visa Office Bulletin (August, 2008) 592

xiv CONTENTS

B. Labor Certification and Its Relationship to the Employment-BasedPreferences 592

Nooria Madany, et al. v. William French Smith, et al. 592Notes 596Production Tool Corp., et al. v. Employment and Training

Administration, et al. 597C. The Significance of Labor Certification 602

Matter ofRaol 602Note 604

D. Recruitment as Part of the Certification Process 604Industrial Holographies, Inc., et al. v. Raymond J. Donovan,

Sect'y of Labor, et al. 604Warmtex Enterprises v. Lynn Martin, Sect'y of Labor 609

E. Business Necessity 612Pancho Villa Restaurant, Inc. v. U.S. Dep't of Labor 612Actual Minimum Job Requirements in Labor Certifications:

Application of Title 20, Section 656.21(B) (6) of the Codeof Federal Regulations to Experience or Training Gainedwith the Employer 614

F. Qualifying "Experience" for Certification 616Matter of Lam 616

G. Issues Involving Labor Certifications 617H. Procedural Flow Chart 621

Chart 3 Labor Certification 621

Chapter 9 • Permanent Residency for Persons Already in the United States 623A. Adjustment of Status 624B. Procedural Flow Charts 625

Chart 1 Affirmative Adjustment Application before USCIS 625Chart 2 Adjustments Application as Defense from Removal 626

C. Statutory Reference 6268 U.S.C. § 1255, Sec. 245 626

1. Qualifying for Adjustment 627a. "[I]nspectedand [A]dmitted ..." 627Matter of Areguillin 627Notes 628

2. Unauthorized Employment Restriction 6298 U.S.C. § 1255, Sec. 245 629Matter of Hall 630Notes 633

3. "Preconceived Intent" and Adjustment 633Matter of Cavazos 633Lolo Mamoka, et al. v. Immigration and Naturalization Service 634Matter ofKotte 636Notes 638

4. Marriage While in "Removal" Proceedings 639a. Conditional and Temporary Residence 639Matter ofEnriquez 639Note 641Problem 642

CONTENTS xv

D. Additional Provisions Allowing for Adjustment of Status 6431. Section 245(i) Adjustment 6432. Registry 6443. Amnesty under the 1986 Act 6454. The Chinese Student Protection Act 648

Gee-Kwong Chan, et al. v. Janet Reno, Attorney General ofthe United States, et al. 648

5. Cuban Refugee Adjustment 6536. Nicaraguans, Cubans, Guatemalans, Salvadorans and

Eastern Europeans (NACARA) 6537. Haitian Relief and Adjustment Act 6548. USA PATRIOT Act of 2001 655

E. Loss of Permanent Residency 6551. Abandonment of Permanent Residency 655

Matter of Huang 655Notes 662

2. Rescission of Adjustment 6638 U.S.C. § 1256, Sec. 246 663Matter of Saunders 663Matter ofBelenzo 668Notes 674

3. If Not Rescission—Removal Proceedings 675Matter ofAwwal 675Notes 678

Chapter 10 • Relief from and Amelioration of Grounds for Removal 679A. Relief from Removal 679

1. Voluntary Departure 679Oscar Alberto Canas-Cuadras v. Immigration and

Naturalization Service 681Notes 683

2. Deferred Action 684O.I. 103.1a(l)(ii) 684Matter of Quintero 685Notes 687

3. Cancellation for Long-Term "Non-Permanent Residents" 687What Went Wrong with Wang?: An Examination of INS v. Wang 688Notes 692a. What Is "Hardship"? 692In re O-J-O- 693Notes 701Procedural Notes 702

B. Waivers of Grounds for Removal and Inadmissibility 7031. Cancellation of Removal—Long-Term Permanent Residents 704

Immigration and Naturalization Service v. Enrico St. Cyr 705In re Florencio Alvarado-Alvino 709In re Cristobal Perez 711Notes 724

2. Crimes 724

xvi CONTENTS

Aggravated Felonies—8 U.S.C. § 1101(a)(43), Sec. 101(a)(43) 726Notes 728

3. Interpretation of the Term "Aggravated Felony" 728Josue Leocal v. John D. Ashcroft 729Alberto Gonzales v. Luis Alexander Duenas-Alvarez 733Jose Antonio Lopez v. Alberto Gonzales 738a. What Is a "Conviction"? 747In re Mauro Roldan-Santoyo 747Hector Tito Lujan-Armendariz, Petitioner v. Immigration and

Naturalization Service, RespondentMauro Roldan-Santoyo, Petitioner v. Immigration andNaturalization Service, Respondent 762

Note 773Chart 1 Waiver Chart 774

b. Waivers for Crimes 7758 U.S.C. § 1182(h), Section 212(h) 775In re Jose Mendez-Moralez 776Notes 782

4. Other Waivers 783a. Waivers for Nonimmigrants 783Matter ofHranka 783Note 785b. Waivers for Fraud or Material Misrepresentation—Sections

212(i) and 237(a)(l)(H) Waivers 785In re Luis Felipe Cervantes-Gonzalez 785Notes 793c. Waiver for Prior Removal 793Matter of Lee 793Notes 796d. Miscellaneous Waivers 797

C. Problem Exercise 798

Chapter 11 • Citizenship—Acquisition and Loss 801A. Citizenship—A Historical Perspective 801

Dred Scott v. John FA. Sandford 801Notes 809

B. U.S. Citizenship and Its Acquisition 810William P. Rogers, Sect'y of State v. Aldo Mario Bellei 812Notes 820Lorelyn Penero Miller v. Madeleine K. Albright, Secretary of State 821Notes 844

C. Citizenship through Naturalization 846D. Loss of Citizenship—Expatriation 848

Cyrus Vance, Sect'y of State v. Laurence J. Terrazas 849Expatriation of United States Citizens: Attorney General's

Statement of Interpretation 8541. Dual Citizenship 856

E. Loss of Citizenship—Denaturalization 8571. Grounds for Denaturalization 857

CONTENTS xvii

2. Effect of Denaturalization 858Feodor Fedorenko v. United States 858Notes 864

3. Administrative Denaturalization 865Irina Gorbach, et al. v. Janet Reno, Att'y Gen., et al. 865Note 876

F. Flowcharts 876Chart 1 Naturalization Flow Chart 876Chart 2 Loss of Nationality 877Chart 3 Denaturalization 877

Chapter 12 • Administrative Appeals and Judicial Review 879A. Administrative Review 879

1. The Department of State—Bureau of Consular Affairs, ExchangeVisitor Waiver Review Board 880

2. The Department of Labor—Board of Alien Labor CertificationAppeals (BALCA) 881

Chart 1 Procedural Flow Chart—Labor Certification Appeals 8813. Secretary of Health and Human Services—Public Health Service 8814. The Department of Justice—Review by the Attorney General 8825. U.S. Immigration and Customs Services (USCIS)—Administrative

Appeals Unit (AAU) 882Chart 2 Procedural Flow Chart—Administrative Review

of USCIS Decisions 8846. Office of the Chief Administrative Hearing Officer (OCAHO) 8847. Executive Office for Immigration Review—Board of Immigration

Appeals and Immigration Judges 8848. Jurisdiction of the Immigration Judge 886

Matter ofRoussis 886Notes 888

9. Venue for the Removal Hearing 889Matter of Rahman 889Notes 891

10. Motions to Reopen and Motions to Reconsider 892In re H-A- 892Notes 901

Chart 3 Procedural Flow Chart—Board of Immigration Appeals 903B. Judicial Review 903

1. Review of Final Orders of Removal 9042. A Rule of Thumb to Understanding "Final Orders" 906

Chart 4 Procedural Flow Chart—Judicial Review of FinalOrders of Removal 907

3. Administrative Procedure Act and Federal Question 9084. Limitations on Review 910

Janet Reno, etal. v. American-Arab Anti- Discrimination Comm., etal. 910Notes 926Immigration and Naturalization Service v. Fredy Orlando Ventura 926

5. Habeas Corpus Review 929David Cole, Jurisdiction and Liberty: Habeas Corpus and Due

Process as Limits on Congress' Control of Federal Jurisdiction 929

xviii CONTENTS

Note 934Immigration and Naturalization Service v. Enrico St. Cyr 935Franklin Henderson, Saul Navas, Engin Yesil, and Guillermo

Mojica v. Immigration and Naturalization Service, et al. 946Notes 960

6. Injunctive Relief 960Antonio Barahona-Gomez, et al. v. Janet Reno, Att'y Gen., et al. 961

7. Varying Forms of Review 967Teodor G. Paunescu and Lelia A. Paunescu v. Immigration and

Naturalization Service 967Notes 973Elian Gonzalez, a Minor, by and through Lazaro Gonzalez, as Next

Friend, or Alternately, as Temporary Legal Custodian v. JanetReno, Attorney General of the United States, et al. 973

Notes 987

Table of Cases 989

Table of Authorities 997

Articles and Books Cited 1007

Index 1013