287(g) - aclu of tennessee comparison

8/14/2019 287(g) - ACLU of Tennessee Comparison

http://slidepdf.com/reader/full/287g-aclu-of-tennessee-comparison 1/20

ACLUTNComparisonof theOldandNew287(g)Agreements

July2009

TheACLUof Tennessee(ACLUTN)ishelpingtomakeTennesseeamoreopen,forwardlookingplacetolive.Wearecommittedtofairnessinourlaws

andtheirenforcement,includingthefairtreatmentof immigrants.Inthisanalysis,weratedeachof theclaimsICEmadeabouttheJuly2009

Memorandumof Agreement(MOA)basedonitsimpactonlawenforcementstimeandresources;lawenforcementspowerandaccountability;

transparency;public

safety;

due

process

and

fairness.

Using

the

same

criteria,

we

also

identified

new

problems

created

by

the

July

2009

MOA

that

didnt

existundertheoriginal2007MOA.

=Better =Worse =NoChange



2

NewProblemsCreatedbytheJuly2009287(g)Agreement

Additional

problems

createdby

new287(g)

MOA

DavidsonCounty287(g)MOA

(February2007)

New

Memorandum

of

Agreement

(July2009)

ACLUTN

Opinion

Explanationof Changes

1)NewMOA

increaseslist

of powers

grantedto

taskforce

officersby

adding

authorityto

execute

search

warrantsand

toissue

arrest

warrants(an

especially

inappropriate

powerfor

detention

officersto

possess)

PowersgrantedinoriginalMOAinclude:

The

power

and

authority

to

interrogateanypersonbelievedtobean

alienastohisrighttobeorremaininthe

UnitedStates(INA§287(a)(1)and8

C.F.R.§287.5(a)(1))andtoprocessfor

immigrationviolationsthoseindividuals

whoareconvictedof StateorFederal

felonyoffenses;

Thepowerandauthoritytoserve

warrantsforarrestforimmigration

violationspursuantto8C.F.R.§

287.5(e)(3);

Thepowerandauthoritytoadminister

oathsandtotakeandconsiderevidence

(INA§287(b)and8C.F.R.§287.5(a)(2)),

tocompleterequiredcriminalalien

Allof thepreviouslygrantedpowersare

maintained.Additionalpowersgranted

include:

Thepowertoprocessforimmigration

violationsanyremovablealienorthose

alienswhohavebeenarrestedfor

violatingaFederal,State,orlocal

offense;

Thepowerandauthoritytoexecute

searchwarrantspursuanttoINA§287(a)

and8C.F.R.§287.5(e)(1);

Thepowerandauthoritytoissuearrest

warrantsforimmigrationviolations

pursuanttoINA§287(a)and8C.F.R.§

287.5(e)(2)

(page19)(emphasisadded)

Thisisachangefortheworse.

Undertheoldagreement,the

DCSOonly

had

authority

to

screenpeopleunder287(g)after

convictionof afelonyoffense.

Despitethislimitation of

authority,theDCSOnever

followedthismandate.Nowthe

newMOAbringsthecontractin

linewiththeDCSOspast

practicesbyallowingallforeign

bornpeople

who

have

been

arrestedbutnotyet

convictedof anyoffense,

whetherfelony,misdemeanoror

localordinanceviolationto be

runthroughthe287(g)system.

Undertheoldagreement,only

actualICEagentscouldexecute



3

Additional

problems

createdby

new287(g)

MOA


(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

Opinion


processing,includingfingerprinting,

photographing,andinterviewingof

aliens,aswellasthepreparationof

affidavitsandthetakingof sworn

statementsforICEsupervisoryreview;

The

power

and

authority

to

prepare

chargingdocumentsINASection239,8

C.F.R.239.1;INASection238,8C.F.R.

238.1,INASection241(a)(5),8C.F.R.

241.8;INASection235(b)(1),8C.F.R.

235.3)includingthepreparationof a

NoticetoAppear(NTA)applicationor

otherchargingdocument,asappropriate,

forsignatureof anICEofficerforaliensin

categoriesestablished

by

ICE

supervisors;

Thepowerandauthoritytoissue

immigrationdetainers;and

Thepowerandauthoritytodetainand

transportarrestedalienstoICEapproved

detentionfacilities.

immigrationsearchwarrants.

Underthenewagreement,this

authorityisextendedto287(g)

agents.

Previouslyarrestwarrantsfor

immigrationviolations

could

only

beissuedbyanICEsupervisor.

Underthenewagreementthey

canbeissuedbya287(g)agent.

Theseexpandedauthoritiesare

particularlytroublingas287(g)

agentsareprovidedwithvery

littletraining(40hours)byICE

andareminimallysupervisedby

ICE.Specifically,

for

the

DCSO

detentionmodelagreement

theseexpandedpowersextend

thedaytodaydutiesof DCSO

officers,whoabsentpowers

giventothembyICE,areonly

authorizedtorunthe jailand

executewarrants.Thisamounts

toamajorandunnecessary



4

Additional

problems

createdby

new287(g)

MOA


(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

Opinion


(page2)(emphasisadded) expansionof DCSOpowerwith

littletrainingandaccountability.

2)NewMOA

attemptsto

shield

information

frompublic

accessor

scrutinyby

declaringthat

averybroadly

definedgroup

of documents

shallnotbe

considered

public

recordsand

requiring

agenciesto

getICE

approval

TheDCSOherebyagreestocoordinate

withICEregardinginformationtobe

releasedtothemediaregardingactions

takenunderthisMOA.(page8)

TheAGENCYherebyagreesto

coordinatewithICEpriortoreleasingany

informationrelatingto,orexchanged

under,thisMOA,includingany[Standard

OperatingProcedure]sdevelopedfor

theimplementationof thisMOA.

Informationobtainedordevelopedasa

resultof thisMOAisunderthecontrolof

ICEandshallbesubjecttopublic

disclosureonlypursuanttothe

provisionsof applicablefederallaws,

regulations,andexecutiveorders.Insofar

asanydocumentscreatedbythe

AGENCYcontaininformationdeveloped

orobtainedasaresultof thisMOA,such

documentsshallnotbeconsidered

publicrecords.Thereleaseof statistical

informationregardingthe287(g)

programmustbecoordinatedwiththe


Undertheoldagreement,DCSO

wasunderanobligation to

coordinatethereleaseof certain

informationwithICE.Underthe

newagreement,many

documentswillbecompletely

shieldedfrompublicreviewand

alldocumentstangentially

relatedtothe287(g)program,its

implementation,complaintsor

statisticswillbepreventedfrom

releaseunderTennesseesOpen

Recordslawandwillbeunder

theexclusivecontrolof ICE.This

lackof transparencyand

availabilityof informationtothe

publicmakesitdifficultforthe

publictobeawareandto



5

Additional

problems

createdby

new287(g)

MOA


(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

Opinion


before

releasing

information

aboutthe

programorits

implementa

tion.

ICEOfficeof PublicAffairs.TheAGENCY

herebyagreestocoordinatewithICE

regardinginformationtobereleasedto

themediaregardingactionstakenunder

thisMOA.Allcontactwiththemedia

involvinginvestigationsconductedunder

thisMOA

by

Task

Force

Officers

(TFO)

willbedonepursuanttoICEpolicy.The

pointsof contactforICEandtheAGENCY

forthispurposeareidentifiedin

AppendixC.(page9)(emphasisadded)

monitortheactivitiesof locallaw

enforcementandlocal

government.Goodgovernment

requirestransparencyand

accountability.

3)NewMOA

eliminates

steering

committee

andauthorizes

exclusionof

civiliansfrom

program

reviews.

TheICEFieldOfficeDirectorinNew

Orleans,LA,andDavidsonCountySheriff

shallestablishasteeringcommitteethat

willmeetperiodically toreviewand

assesstheimmigrationenforcement

activitiesconductedbytheParticipating

DCSOpersonnelandtoensure

compliancewiththetermsof thisMOA

(page8)

Nolongerreferstoasteering

committee,butinsteadsimplyperiodic

meetingsbetweentheprincipals.When

necessary,ICEandtheAGENCYmaylimit

theparticipationof thesemeetingsin

regardstononlawenforcement

personnel.(page9)


Undertheoldagreement,there

wasalevelof formality

associatedwithanofficial

SteeringCommittee.

Presumablymorepeoplewere

membersof thiscommitteethan

justtheprincipalsof ICEandthe

DCSO.Theeliminationof the

formalcommitteeerodes



6

Additional

problems

createdby

new287(g)

MOA


(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

Opinion


oversightanddiscussionsof

complaintsandproblemswith

theprogram.

4)NewMOA

explicitlydoes

notrequire

data

collection,

whereasold

MOAplaceda

general

obligationon

agencyto

trackand

maintain

accuratedata

andstatistical

information

TheDCSOwillberesponsiblefortracking

andmaintainingaccuratedataand

statisticalinformationfortheir287(g)

program,includinganyspecifictracking

datarequestedbyICE.(page6)

ICEdoesnotrequiretheAGENCYto

providestatisticalorarrestdataabove

whatisenteredintoENFORCE1;however,

ICEreservestherighttorequestthe

AGENCYprovidespecifictrackingdata

and/oranyinformation,documents,or

evidencerelatedtothecircumstancesof

aparticularaliensarrest.(page6)


Thoughtherequirementsfor

datacollectionwerevagueunder

theoldagreement,theDCSO

wasatleastrequiredtotrack

dataandstatisticalinformation

aboutimplementationof the

program.ThenewMOAdoes

notrequireanyinformationtobe

collectedotherthanthebasic

personaldemographic

informationneededtoruna

detaineethroughtheENFORCE

immigrationdatabase.

Additionalinfoprovidesabetter

waytomonitortheprogram.

1ENFORCE is ICE’s database of basic information on people in the immigration system.



7

Additional

problems

createdby

new287(g)

MOA


(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

Opinion


5)NewMOA

doesnotlimit

thenumberof

287(g)

designated

agentswithin

the

jurisdiction.

LimitedtheDCSOtotwelve(12)agents.

(page1)

Hasnolimitationonthenumberof

agents.(page1)


Theoriginalagreementatleast

limitedthenumberof agents

DCSOcoulddeputizeasICE

agents.

Under

the

new

agreement,nosuchlimitexists.

Eachadditionalagentcomeswith

additionalcostsforovertime,

trainingandtechnology.



9

ICEclaims

these

changeswill

betterthe

287(g)

agreements2

DavidsonCountySheriffs

Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

fishingwithoutalicense.

B)Purpose

of

287(g)

authorityis

nowprovided

inMOA.

Itis

the

intent

of

the

parties

that

these

delegatedauthoritieswillenableDCSO

toidentifyandprocessimmigration

violatorsinDCSO jailandcorrectional

facilities.Thepurposeof thisMOAis

tosetforththetermsandconditions

pursuanttowhichselectedDCSO

personnelwillbenominated,trained,

andthereafterperformcertain

functionsof

an

immigration

officer

.

(page1)

Itis

the

intent

of

the

parties

that

thesedelegatedauthoritieswill

enabletheAGENCYtoidentifyand

processimmigrationviolatorsand

conductcriminalinvestigations

underICEsupervision,asdetailed

herein,withintheconfinesof the

AGENCYSAREAOF

RESPONSBILITY. ThisMOAsets

forththe

terms

and

conditions

pursuanttowhichselected

AGENCYpersonnelwillbe

nominated,trained,andapproved

byICEtoperformcertainfunctions

Thisis

not

achange

at

all.

The

descriptionof thepurposeof the

MOAisidenticaltothatof the

oldMOA.Theonlydifference

hereisthatinthenewMOA,ICE

hasaddedlanguagediscussinga

focusoncriminalaliens,which

isneverdefined.Thislanguage

doesnothaveanyapparent

operativeeffect

whatsoever.

3See two memos regarding ICE priorities for detention: Oct. 19, 2004 memo: “Implementation of Detention Prioritization and Notice to Appear Documentary

Requirements” and Oct. 18, 2004 memo: “Detention Prioritization and Notice to Appear Documentary Requirements.”4

“Removal vehicle” refers to the various ways people are processed through immigration for deportation.



10

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

of animmigrationofficer.

(page1)

Includesnewlanguagesayingthat

Thepurposeof thiscollaboration

istoenhancethesafetyand

securityof communitiesby

focusingresourcesonidentifying

andprocessingforremoval

criminalalienswhoposeathreat

topublicsafetyoradangertothe

community.

C)Expressly

limitsthelaw

enforcement

agencys287(g)

authoritytothe

LimiteddelegatedauthoritiestoDCSO

JailandCorrectionalFacilities.(page1)

Limitsdelegatedauthority

towithintheconfinesof the

AGENCYSAREAOF

RESPONSBILITY (page1)

Thisisnotachangeatall.

AuthorityintheoriginalMOA

wasconfinedtoDCSOJailand

DetentionFacilitiesandit

remainsexactlythesameinthe



12

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

287(g)officersasawhole.This

onlyfurthercomplicatesa287(g)

jurisdictionsunderstandingof

thescopeof theauthority

grantedtothemunderthis

agreement.SeeNewProblems

No.1.

E)Federalcivil

rightsnot

addressedin

oldMOA

ParticipatingDCSOpersonnelare

boundbyallfederalcivilrightsstatutes

andregulations,includingtheU.S.

Departmentof

Justice

Guidance

RegardingTheUseOf RaceByFederal

LawEnforcementAgenciesdatedJune

2003.(page7)

ParticipatingAGENCYpersonnel

areboundbyallfederalcivilrights

laws,regulations,guidancerelating

tonon

discrimination

including

the

U.S.Departmentof Justice

GuidanceRegardingTheUseOf

RaceByFederalLawEnforcement

AgenciesdatedJune2003and

TitleVIof theCivilRightsActof

1964,asamended,42.U.S.C.2000

et.seq.,whichprohibits

discriminationbaseduponrace,

Thisisnorealchangeatall.The

onlydifferencebetweenthetwo

documentsisthatthenewMOA

ismore

detailed

in

describing

the

specificsof civilrightslawsand

specifically mentionslimited

Englishproficiencyasbeingan

inappropriatefactorinenforcing

theagreement.Despite

mountingevidencethatmanyof

theseagreementsencourage

racialandethnicprofiling,the



13

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

color,ornationalorigin(including

limitedEnglishproficiency)inany

programoractivityreceiving

FederalfinancialAssistance.

(page8)

newMOAdoesnotmandate

additionalormoreextensive

trainingtopreventcivilrights

violations.

F)

Interpretation

servicesnot

addressedin

previousMOA

ParticipatingDCSOpersonnelwill

provideanopportunityforsubjects

withlimitedEnglishlanguage

proficiencytorequestaninterpreter.

Qualifiedforeignlanguageinterpreters

willbe

provided

by

DCSO

as

needed.

(page8)

ParticipatingAGENCYpersonnel

willprovideanopportunityfor

subjectswithlimitedEnglish

languageproficiencytorequestan

interpreter.Qualifiedforeign

languageinterpreters

will

be

providedbytheAGENCY,as

needed.(page8)

TheAGENCYwillmaintainalistof

qualifiedinterpretersor

companiesitcontractswithto

providesuchinterpreters.

Participatinglawenforcement

Thisisnorealchange.Theold

MOAmandatedthatinterpreters

bemadeavailableto287(g)

detainees.Thenewagreement

simplyaddslanguagemandating

thatalist

of

interpreters

be

availableattheDCSOandthat

interpretersaretobeidentified

indocuments.



14

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

personnelwillbeinstructedonthe

properadministrativeprocedures

tofollowtoobtaintheservicesof

aninterpreter.Aqualified

interpretermeansaninterpreter

whocaninterpreteffectively,

accurately,andimpartially,using

anyspecializedvocabulary.If an

interpreterisusedwhena

designatedofficerisperforming

functionsunderthisMOA,the

interpretermustbeidentified,by

name,inrecords.(page8)

G)OldMOA

[d]idnot

clearlystate

where

complaints

shouldbe

Inordertosimplifytheprocessforthe

public,complaintscanbereportedin

anumberof ways.TheICE

HeadquartersOfficeof Professional

Responsibility [OPR]andtheDCSOs

Officeof StandardsandAccountability

Inordertosimplifytheprocess

forthepublic,complaintsagainst

participatingAGENCYpersonnel

canbereportedinthefollowing

manner.(page13)

Theonlydiscernibledifference

hereisthatinthenewMOA,

complaintsaretobemade

directlytoICEandnottothe

DCSO.



15

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

forwarded (DCSOOSA)willcoordinatecomplaint

receiptandinvestigation.(page12)

Givestollfreenumberandaddressfor

ICEOPR

at

HQ;

and

address

for

ICE

OPR

officeinNewOrleans.(page13)

AlsogivescontactinfoforDCSOSheriff

andInvestigationsDivisionOfficeof

StandardsandAccountability.(page13)

[T]heDCSOshall,totheextent

allowedby

state

law,

immediately

notifyICEof theexistenceandnatureof

[anyrelevant]complaint.Theresolution

of thecomplaintshallalsobepromptly

reportedtoICE.(page6)

ProvidestollfreenumberforDHS

OIG,tollfreenumber,mailaddress

andemailforICEOPRatHQ.(page

14)

[T]heAGENCYshall,totheextent

allowedbyStatelaw,immediately

notifyICEof theexistenceand

natureof [anyrelevant]complaint

orallegation.Theresultsof any

internalinvestigationorinquiry

connectedtothecomplaintor

allegationandtheresolutionof the

complaintshallalsobepromptly

reportedtoICE.(13)



16

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

H)Pursuing

chargesto

completionwas

notaddressed

inprevious

MOA

DavidsonCountyauthoritiesexpected

topursuetocompletionprosecutionof

thestate

or

local

charges

that

caused

theindividualtobetakenintocustody.

(page3)

TheAGENCYisexpectedto

pursuetocompletionallcriminal

chargesthat

caused

the

alien

to

be

takenintocustodyandoverwhich

theAGENCYhas jurisdiction.

(page2)

Thisisnochangeatall.Theold

287(g)agreement,byvirtueof

theway

the

model

is

set

up,

meansthat287(g)isnotafactor

inDavidsonCountyunless

authoritieswerepursuingthe

charges.Inordertoberun

throughtheprogramatthe

DCSO,thepoliceofficermust

havealreadymadethedecision

toarrestanindividualand

broughtthem

in

front

of

a

commissionertosetabondand

determineprobablecause.

Thereisnochangehere.



17

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

I)Performance

of dutiesbythe

law

enforcement

agencywasnot

addressed

Eitherparty,uponwrittennoticeto

theotherparty,mayterminatethe

MOAat

any

time.

(page

8)

DuringtheMOAseffective

period,eitherparty,uponwritten

noticeto

the

other

party,

may

terminatetheMOAatanytime.

(page10)

Uponagoodfaith

determinationthattheAGENCYis

notfulfillingitsduties,ICEshall

notifytheAGENCY,inwriting,and

informtheAGENCYthatithas90

daysto

demonstrate

acontinued

needfor287(g)programservices.

If thiscontinuedneedisnot

demonstratedbythe

AGENCY,theauthoritiesand

resourcesgiventotheAGENCY

pursuanttothisMOAwillbe

terminatedorsuspended.Upona

Thisischangefortheworse.The

basictermsof theagreement

havenot

changed

substantially

(i.e.eithersidecanterminateat

anytime).Howeverthe

additionallanguageinthenew

agreementcreatesincreased

pressureon287(g) jurisdictions

touseitatlevelICEfinds

acceptable,orloseit.



18

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

subsequentdemonstrationof

need,allcoststoreinstateaccess

tosuchauthoritiesand/orprogram

serviceswillbeincurredbythe

AGENCY.(page10)

J)Previous

MOA[d]idnot

provide

additional

detailaround

criteriafor

accepting

candidatesto

become287(g)

agents.

Foreachcandidate,ICEmayrequest

anyinformationnecessaryfora

backgroundcheckandtoevaluatea

candidatessuitabilityAllcandidates

mustbeU.S.citizens.Allcandidates

musthave

at

least

two

years

of

DCSO

workexperience.Allcandidatesmust

beapprovedbyICEandmustbeableto

qualifyforappropriatefederalsecurity

clearances.(page4)

AllcandidatesmustbeUnited

Statescitizens.TheAGENCYis

responsibleforconductinga

criminalbackgroundcheckwithin

thelastfiveyearsforallnominated

candidates.

(page

3)

InadditiontotheAGENCY

backgroundcheck,ICEwillconduct

anindependentbackgroundcheck

foreachcandidate.This

backgroundcheckrequiresall

candidatestocompletea

backgroundquestionnaire.The

Thisischangefortheworse,

loweringthequalifications

necessarytobeaparticipantin

theprogram.Intheold287(g)

agreement,officerswere

mandatedto

have

at

least

two

yearslawenforcement

experience.Inthenew

agreement,participantsareonly

requiredtohaveoneyearof

experience.Thenew

agreement,doeshowever,go

intomoredetailonthe

requirements thatapplicants



19

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

questionnairerequires,butisnot

limitedto,thesubmissionof

fingerprints,apersonalhistory

questionnaire,andthecandidates

disciplinaryhistory(including

allegationsof excessiveforceor

discriminatoryaction).(page3)

Taskforceparticipantsshould

haveaminimumof oneyearof law

enforcementexperience. (page

21)

Detention

participants

shall

have

specificexperiencethatshould

consistof havingsupervised

inmates.(page23)

haveamoreextensive

backgroundcheckandatleast

someexperiencesupervising

detainees.



20

ICEclaims

these

changeswill

betterthe

287(g)

agreements2


Office(DCSO)

287(g)

MOA

(February2007)

NewMemorandumof

Agreement

(July2009)

ACLUTN

OpinionExplanation

of

Changes

K)Operations

planapproval

notrequired

underoldMOA

NotapplicableforDCSOdetention

onlymodel.

Taskforceonly:Priortoan

AGENCYconductingany

enforcementoperation

that

will

involvetheuseof its287(g)

delegationof authority,the

AGENCYmustprovidetheICE

supervisorwithacopyof the

operationsplan,andthe[Special

AgentinCharge/Field Office

Director]mustconcurandapprove

withtheplanpriortoitbeing

initiated.(page

20)

N/A

Thislanguageinthenew

agreementshouldnotbe

applicableto

the

DCSO,

which

is

adetentionorjail

enforcement 287(g) jurisdiction.

287(g) - aclu of tennessee comparison

Documents