xv

DETAILED TABLE OF CONTENTS

AILA’S ASYLUM PRIMER SIXTH EDITION

Dedication..................................................................................................................... v Preface ........................................................................................................................ vii Acknowledgments .....................................................................................................xiii Detailed Table of Contents ......................................................................................... xv Glossary of Acronyms ........................................................................................... xxxix Table of Federal Court Decisions and State Court Decisions .................................. 645 Table of Administrative Decisions ........................................................................... 667 Table of Court and Administrative Decisions Sorted by Country............................ 675 Table of Foreign Tribunal Decisions........................................................................ 695 Subject-Matter Index ................................................................................................ 697

Chapter 1: Sources of Asylum Law .......................................................................... 1 1.1. International Law.......................................................................................... 1

1.1.1. The 1951 Convention/1967 Protocol Relating to the Status of Refugees ............................................................................................................... 1

The Definition of Refugee ........................................................................... 4 The Principle of Nonrefoulement ................................................................ 4 UNHCR’s Handbook on Procedures and Criteria for Determining

Refugee Status .................................................................................................. 5 UNHCR Executive Committee Conclusions............................................... 6 Other UNHCR Publications ........................................................................ 6

1.1.2. Customary International Law ................................................................ 7 1.1.3. Convention Against Torture and Other Cruel, Inhuman or

Degrading Treatment or Punishment.................................................................... 8 1.1.4. Other Treaties ........................................................................................ 9

1.2. U.S. Statutes................................................................................................ 10 1.2.1. Refugee Act of 1980............................................................................ 10

Definition of Refugee ................................................................................ 11

xvi AILA’s ASYLUM PRIMER, SIXTH EDITION

Asylum....................................................................................................... 11 The Principle of Nonrefoulement .............................................................. 11

1.2.2. Illegal Immigration Reform and Immigrant Responsibility Act ......... 12 Revised Definition of Refugee .................................................................. 12 Revised Nonrefoulement Provision........................................................... 12 Additional Statutory Bars to Asylum......................................................... 13 Expedited Removal Proceedings ............................................................... 13

1.2.3. USA PATRIOT Act............................................................................. 13 1.2.4. The REAL ID Act................................................................................ 14 1.2.5. The Trafficking Victims Proection Reauthorization Act of 2008 ....... 14

1.3. Regulations ................................................................................................. 15 1.4. Operations Instructions and Field Manuals ................................................ 15 1.5. BIA Decisions............................................................................................. 16 1.6. Office of Legal Counsel Decisions............................................................. 17 1.7. Federal Court Decisions ............................................................................. 17 1.8. Legacy INS, DHS, and EOIR Policy Directives,

Memoranda, and Statements................................................................................... 19 1.9. Legacy INS’s Basic Law Manual and Asylum Officer

Basic Training Course ............................................................................................ 20 1.10. Laws of Other Countries........................................................................... 21

Chapter 2: U.S. Asylum Law................................................................................... 23

2.1. History ........................................................................................................ 23 2.2. Asylum Standard—Relief Available .......................................................... 25 2.3. Withholding Standard—Relief Available................................................... 26 2.4. Definitions .................................................................................................. 27

2.4.1. Refugee ................................................................................................ 27 2.4.2. Country of Nationality and Statelessness ............................................ 28 2.4.3. Unable or Unwilling to Return ............................................................ 30 2.4.4. Well-Founded Fear .............................................................................. 30 2.4.5. Persecution........................................................................................... 33

Definition of Persecution........................................................................... 33 Examples of Persecution............................................................................ 35 Past Persecution as a Basis for Asylum..................................................... 39

2.4.6. “On Account of”; Mixed Motives ....................................................... 41

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“On Account of” ........................................................................................ 41 Mixed Motives........................................................................................... 41 Imputed Protected Grounds ....................................................................... 44

2.4.7. Race ..................................................................................................... 44 2.4.8. Religion................................................................................................ 45 2.4.9. Nationality ........................................................................................... 49 2.4.10. Membership in a Particular Social Group.......................................... 50 2.4.11. Political Opinion................................................................................ 57

Actual: Acts, Words, and Beliefs............................................................... 57 Unexpressed............................................................................................... 58 Imputed ...................................................................................................... 59 Neutrality ................................................................................................... 60 Coercive Population Control ..................................................................... 60

2.5. Current Issues in U.S. Asylum Cases ......................................................... 66 2.5.1. Gender-Based Claims .......................................................................... 66 2.5.2. Children ............................................................................................... 71 2.5.3. Sexual Orientation ............................................................................... 74 2.5.4. HIV-Positive/AIDS Status................................................................... 75 2.5.5. Disabilities—Physical and Mental....................................................... 76 2.5.6. Gang-Related Claims........................................................................... 78 2.5.7. Conscription; Refusal to Serve ............................................................ 80 2.5.8. Nongovernmental Actors..................................................................... 82 2.5.9. Countrywide Persecution..................................................................... 83 2.5.10. Prosecution vs. Persecution ............................................................... 85

Punishment for Criminal Conduct ............................................................. 85 Punishment for Illegal Departure; Unauthorized Stays ............................. 87

2.5.11. Refugee Sur Place.............................................................................. 88 2.5.12. Remaining in Home Country for an Extended Period of Time ......... 89 2.5.13. Returning to Country of Claimed Persecution................................... 90

2.6. Burden of Proof .......................................................................................... 90 2.6.1. On Applicant........................................................................................ 90 2.6.2. Testimony and Credibility ................................................................... 91 2.6.3. Corroboration: Evidence and Country Conditions Documentation..... 96 2.6.4. Benefit of the Doubt .......................................................................... 101 2.6.5. Specific Threat of Harm .................................................................... 102

xviii AILA’s ASYLUM PRIMER, SIXTH EDITION

2.6.6. Persecution of Family and Friends .................................................... 103 2.6.7. “Similarly Situated” Standard............................................................ 105 2.6.8. Possession of a Valid Passport .......................................................... 107 2.6.9. Changed Country Conditions; Administrative Notice....................... 108 2.6.10. Past Persecution; Presumption of Future Persecution ..................... 109

Fundamental Change in Circumstances................................................... 110 Reasonableness of Internal Relocation Alternative ................................. 112 Humanitarian Asylum.............................................................................. 114

2.6.11. Foreign Law..................................................................................... 116 2.7. Ineligibility for Asylum and Withholding of Removal ............................ 116

2.7.1. Asylum—Discretionary Denials........................................................ 116 2.7.2. Mandatory Bars to Both Asylum and Withholding of Removal ....... 119

Particularly Serious Crimes ..................................................................... 119 Aggravated Felonies ................................................................................ 120 Nonaggravated Felonies .......................................................................... 123 Serious Nonpolitical Crimes.................................................................... 124 Participation in Persecution of Others ..................................................... 126 Danger to Security of the United States .................................................. 128 Terrorism ................................................................................................. 129

Engaging in Terrorist Activity............................................................. 129 Representative of a Foreign Terrorist Organization ............................ 132 Representatives of Political or Social Groups That Endorse

Terrorist Activity ...................................................................................... 132 Individuals in Positions of Prominence Who Endorse Terrorist

Activity ..................................................................................................... 133 Members of Terrorist Organizations.................................................... 133 Waiver of Certain Grounds of Inadmissibility .................................... 134 Alien Terrorist Removal Courts .......................................................... 136 Mandatory Detention of “Suspected Terrorists” ................................. 136

2.7.3. Bars to Asylum Only ......................................................................... 136 Prior Asylum Denial ................................................................................ 136 One-Year Filing Deadline........................................................................ 138

Extraordinary Circumstances............................................................... 140 Changed Circumstances....................................................................... 142

Firm Resettlement.................................................................................... 144

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Safe Third Country .................................................................................. 147 2.7.4. Bars to Withholding Only.................................................................. 148

Participation in Nazi Persecution............................................................. 148 Participation in Genocide ........................................................................ 149

2.8. Standard of Review................................................................................... 149 2.8.1. Before the BIA................................................................................... 149 2.8.2. Before the Attorney General.............................................................. 150 2.8.3. Before the Federal Courts .................................................................. 150

Limited Review of Certain Asylum Bars ................................................ 151 No Review for Persons Convicted of Crimes.......................................... 153 Revised Statutory Standards of Review................................................... 153 De Novo Standard of Review .................................................................. 154 Abuse of Discretion ................................................................................. 155 Statutory Construction ............................................................................. 155 Deference in Credibility Determinations................................................. 155 Review of Factual Findings ..................................................................... 157 Review of “Changed Circumstances” Determinations............................ 157

Chapter 3: Asylum and Withholding of Removal Procedures ........................... 159

3.1. Who Is Eligible to Apply.......................................................................... 160 3.1.1. In General .......................................................................................... 160

Asylum..................................................................................................... 160 Withholding of Removal ......................................................................... 160 Overseas Processing and Refugee Admissions ....................................... 161

3.1.2. Ineligibility for Asylum and Withholding of Removal ..................... 162 Bars to Asylum Only ............................................................................... 162 Bars to Asylum and Withholding ............................................................ 162 Bars to Withholding Only........................................................................ 162

3.1.3. Required Notices ............................................................................... 163 Notice of Right to Be Represented .......................................................... 163 Notice of Consequences of Filing a Frivolous Application..................... 163 Notice That Information May Be Used to Initiate Removal

Proceedings and Satisfy the Government’s Burden of Proof ....................... 165 Notice of Confidentiality ......................................................................... 165

3.2. Affirmative Procedures............................................................................. 166

xx AILA’s ASYLUM PRIMER, SIXTH EDITION

3.2.1. Who Is Eligible .................................................................................. 166 3.2.2. Where to File ..................................................................................... 167 3.2.3. No Filing Fee ..................................................................................... 168 3.2.4. Incomplete Applications .................................................................... 168 3.2.5. Interview............................................................................................ 168

Time Period ............................................................................................. 168 Nonadversarial ......................................................................................... 169 Biometrics................................................................................................ 169 Interpreter ................................................................................................ 170 Role of Attorney or Representative ......................................................... 170 Department of State Comments............................................................... 171 Department Authenticity of Documents .................................................. 171 Retention of Fraudulent Documents ........................................................ 172 Failure to Appear ..................................................................................... 172 Identity Check.......................................................................................... 173 Decision—Grant, Denial, or Referral ...................................................... 173

Grant .................................................................................................... 173 Denial................................................................................................... 174 Referral ................................................................................................ 174

No Appeal/Motions to Reopen or Reconsider/Quality Assurance .......... 175 3.2.6. Affirmative Procedures for Children ................................................. 177

3.3. Immigration Court (Defensive) Procedures.............................................. 177 3.3.1. Who Is Eligible .................................................................................. 178 3.3.2. Where to File ..................................................................................... 179 3.3.3. No Filing Fee ..................................................................................... 180 3.3.4. Biometrics.......................................................................................... 180 3.3.5. Hearing .............................................................................................. 180

Time Period ............................................................................................. 180 Master Calendar Hearings ....................................................................... 181

Entry of Appearance ............................................................................ 181 Continuances........................................................................................ 181 Advisals ............................................................................................... 182 Ascertain Desire for Representation .................................................... 183 Pleadings.............................................................................................. 183

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Designation of a Country of Removal ................................................. 184 Motions ................................................................................................ 184

Removability............................................................................................ 185 Deportability ........................................................................................ 185 Inadmissibility ..................................................................................... 185 Mandatory Denials............................................................................... 186 Department of State Comments........................................................... 186

Merits Hearing ......................................................................................... 186 Supporting Documentation/Witness Lists—Submission Deadlines.... 187 Open Hearings ..................................................................................... 187 Closed Hearings................................................................................... 187 Videoconferenced Hearings................................................................. 188 Headquarters Immigration Court ......................................................... 188 Location of Hearings ........................................................................... 189

Rights....................................................................................................... 190 Fourth Amendment Rights .................................................................. 190 Right to Due Process ........................................................................... 191 Right Not to Incriminate Oneself......................................................... 194 Right to Representation ....................................................................... 194 Right to Competent Interpreter ............................................................ 197 Right to Present, Examine, and Object to Evidence ............................ 197 Right to Cross-Examine Witnesses...................................................... 198 Right to Appeal.................................................................................... 199 “Right” to Confidentiality.................................................................... 199

Incompetents............................................................................................ 203 Unaccompanied Minors........................................................................... 204 Consequences of Failure to Appear ......................................................... 205

Within 180 Days of the Date of the In Absentia Order ....................... 207 Any Time After the Date of the In Absentia Order ............................. 207

Evidence .................................................................................................. 209 Experts and Witnesses ......................................................................... 210 Hearsay ................................................................................................ 212 Discovery............................................................................................. 212 Classified Evidence ............................................................................. 212 Authentication of Documents .............................................................. 213

xxii AILA’s ASYLUM PRIMER, SIXTH EDITION

Affidavits vs. Declarations .................................................................. 214 Foreign Language Documents ............................................................. 215 Foreign Law......................................................................................... 215

IJ Decision and Order .............................................................................. 215 3.4. Asylum Procedures for Stowaways .......................................................... 216

3.4.1. Credible Fear ..................................................................................... 216 3.4.2. No Credible Fear................................................................................ 216 3.4.3. IJ Review of Negative Credible Fear Determination......................... 217

3.5. Asylum Procedures for Children .............................................................. 217 3.5.1. Exception to One-Year Filing Deadline ............................................ 220 3.5.2. Exception to Expedited Removal ...................................................... 221 3.5.3. Aged-Out Children ............................................................................. 221

Children Who Age Out Before the Asylum Interview ............................ 222 Children Who Age Out Before Adjustment of Status ............................. 222 Children Who Age Out Before I-730 Is Filed ......................................... 222

3.5.4. Detention of Children ........................................................................ 222 3.6. Reinstatement of Removal........................................................................ 224

3.6.1. Preliminary Procedures...................................................................... 225 3.6.2. Definition of Reasonable Fear ........................................................... 226 3.6.3. No Bars Considered........................................................................... 226 3.6.4. Interview............................................................................................ 226

Orientation ............................................................................................... 227 Scheduling of Interview........................................................................... 227 Representation ......................................................................................... 227 Evidence .................................................................................................. 228 Interpretation............................................................................................ 228 Record...................................................................................................... 229

3.6.5. Decision ............................................................................................. 229 Reasonable Fear—Withholding-Only Proceeding Before an IJ.............. 229 No Reasonable Fear—Removal or IJ Review ......................................... 230 Withdrawals............................................................................................. 230

3.6.6. Review of Negative Reasonable Fear Determination by IJ ............... 230 Reasonable Fear....................................................................................... 231 No Reasonable Fear ................................................................................. 231

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3.7. Expedited Removal for Aggravated Felons.............................................. 232 3.7.1. Administrative Removal Proceedings ............................................... 232

Initiation................................................................................................... 232 Response to Notice of Intent (I-851) ....................................................... 233 Initiation of §240 Removal Proceedings ................................................. 233 Termination of §240 Removal Proceedings ............................................ 233 Judicial Review........................................................................................ 233

3.7.2. Reasonable Fear Determination by an Asylum Officer..................... 234 Preliminary Procedures............................................................................ 234 Definition of Reasonable Fear ................................................................. 234 No Bars Considered................................................................................. 234 Interview.................................................................................................. 235 Orientation ............................................................................................... 235 Scheduling of Interview........................................................................... 235 Representation ......................................................................................... 236 Evidence .................................................................................................. 236 Interpretation............................................................................................ 236 Record...................................................................................................... 237 Decision ................................................................................................... 237

Reasonable Fear—Withholding-Only Proceeding Before an IJ.......... 237 No Reasonable Fear—Removal or IJ Review ..................................... 238

Withdrawals............................................................................................. 238 3.7.3. Review of Negative Reasonable Fear Determination by IJ ............... 239

Reasonable Fear....................................................................................... 239 No Reasonable Fear ................................................................................. 240

3.8. Release from Detention ............................................................................ 240 3.8.1. Who Is Eligible for Release ............................................................... 241

Individuals Found to Have a Credible Fear ............................................. 241 Noncriminals Who Have Made a Lawful or Illegal Entry or Who Fall

Within the Definition of “Arriving Alien” ................................................... 241 Individuals Who Completed Their Criminal Sentences Prior to

October 9, 1998, or with Final Orders of Removal Who Cannot Be Returned to Their Home Countries .............................................................................. 241

Children ................................................................................................... 242 3.8.2. Who Is Not Eligible for Release ........................................................ 243

Individuals in Expedited Removal........................................................... 243

xxiv AILA’s ASYLUM PRIMER, SIXTH EDITION

Individuals Subject to Criminal Grounds of Deportation or

Inadmissibility............................................................................................. 243 Terrorists.................................................................................................. 243 Individuals with Final Orders of Removal .............................................. 244

3.8.3. Bond Hearings vs. Parole Requests ................................................... 244 3.8.4. Bond Hearings ................................................................................... 244

Procedure ................................................................................................. 245 Application for an Initial Bond Redetermination ................................ 245 Venue................................................................................................... 245 Separate Proceeding............................................................................. 245 Basis for Decision................................................................................ 246 Decision ............................................................................................... 246 Appeal.................................................................................................. 246 Request for a Subsequent Bond Redetermination ............................... 246

Burden of Proof ....................................................................................... 246 3.8.5. Requests for Release (or Parole) to ICE District Directors ............... 247

Eligibility and Burden of Proof ............................................................... 248 Expedited Removal.............................................................................. 248 Credible Fear Finding .......................................................................... 248 Others Arriving at a Port of Entry ....................................................... 248 Arriving Individuals Subject to Criminal Grounds for Detention ....... 248

Procedure ................................................................................................. 249 Alternatives to Detention......................................................................... 249

3.9. Employment Authorization ...................................................................... 249 3.9.1. Eligibility ........................................................................................... 250 3.9.2. Time for Filing................................................................................... 250 3.9.3. What to File ....................................................................................... 251 3.9.4. Where to File ..................................................................................... 251 3.9.5. Fee...................................................................................................... 251 3.9.6. Adjudication Period ........................................................................... 251 3.9.7. Renewals............................................................................................ 251 3.9.8. Asylees and Withholding Grantees.................................................... 252 3.9.9. Social Security Cards......................................................................... 253

Asylum Applicants .................................................................................. 253 Asylees..................................................................................................... 253

DETAILED TABLE OF CONTENTS xxv

3.9.10. Federal Individual Tax ID Numbers................................................ 254 Asylum Applicants and Asylees .............................................................. 254

3.9.11. Termination...................................................................................... 255 Asylum Officer Denial ............................................................................ 255 IJ, BIA, or Federal Court Denial ............................................................. 255

3.10. Appeals to BIA ....................................................................................... 255 3.10.1. Notice of Right to File an Appeal.................................................... 256 3.10.2. When to File .................................................................................... 257 3.10.3. Where to File ................................................................................... 257 3.10.4. What to File ..................................................................................... 257 3.10.5. Fee.................................................................................................... 258 3.10.6. Streamlined Process......................................................................... 258 3.10.7. Service on DHS ............................................................................... 260 3.10.8. Automatic Stay of Removal............................................................. 260 3.10.9. Briefs................................................................................................ 260 3.10.10. Oral Argument ............................................................................... 261 3.10.11. Ineligibility/Waived Appeal .......................................................... 261 3.10.12. Departure from United States ........................................................ 262 3.10.13. Interlocutory Appeal....................................................................... 262 3.10.14. Proper Service of the BIA Decision .............................................. 262

3.11. Motions to Reopen and Reconsider ........................................................ 263 3.11.1. Who May Make a Motion................................................................ 263 3.11.2. Where to File ................................................................................... 264 3.11.3. Jurisdiction....................................................................................... 264 3.11.4. Standard of Review; Burden of Proof.............................................. 264 3.11.5. Limit on Number ............................................................................. 265 3.11.6. Time Limit for Filing....................................................................... 266

Motion to Reconsider—30 Days ............................................................. 266 Motion to Reopen—90 Days ................................................................... 266

3.11.7. Exceptions to the Numerical and Time Limitations ........................ 266 Iraqi Nationals ......................................................................................... 266 Motion to Reopen an Order Entered In Absentia .................................... 266 Changed Circumstances........................................................................... 266 Consent by All Parties ............................................................................. 268 DHS Motions Regarding Fraud or Crimes .............................................. 268

xxvi AILA’s ASYLUM PRIMER, SIXTH EDITION

Equitable Tolling ..................................................................................... 268

3.11.8. Contents of Motions ........................................................................ 269 Contents of Motion to Reconsider ........................................................... 270 Contents of Motion to Reopen................................................................. 270

3.11.9. Stay of Removal .............................................................................. 271 3.11.10. Reply to Motion............................................................................. 271 3.11.11. Rulings on Motion ......................................................................... 271 3.11.12. Departure from the United States .................................................. 271

3.12. Judicial Review....................................................................................... 272 3.12.1. Chevron Deference .......................................................................... 273 3.12.2. No Review ....................................................................................... 273

Negative Credible Fear Determination .................................................... 273 Noncitizens Convicted of Certain Crimes ............................................... 273 Reinstatement .......................................................................................... 273

3.12.3. Restrictions on Judicial Review....................................................... 273 Safe Third Country .................................................................................. 273 One-Year Deadline .................................................................................. 273 Previous Denial........................................................................................ 275 Terrorist Bar............................................................................................. 275 Expedited Removal.................................................................................. 275 Discretionary Determinations by the IJ and BIA..................................... 275

3.12.4. Procedures........................................................................................ 276 Time Limit ............................................................................................... 276 Venue....................................................................................................... 277 What to File ............................................................................................. 277 Voluntary Departure—New Rule ............................................................ 277 Briefing Schedule .................................................................................... 278 Scope of Review...................................................................................... 278 Stay of Removal ...................................................................................... 278 Motions to Reopen or Reconsider ........................................................... 279

3.13. Adjustment of Status for Asylees and Refugees..................................... 279 3.13.1. Asylees............................................................................................. 279 3.13.2. Refugees .......................................................................................... 280

3.14. Refugee Travel Document ...................................................................... 282

DETAILED TABLE OF CONTENTS xxvii

3.14.1. Who May File .................................................................................. 282 3.14.2. Where to File ................................................................................... 283 3.14.3. Fee.................................................................................................... 283 3.14.4. What to File ..................................................................................... 283

3.15. Refugee/Asylee Relative Petition (I-730)............................................... 284 3.15.1. Relationship ..................................................................................... 284 3.15.2. Who May File .................................................................................. 285 3.15.3. Where to File ................................................................................... 285 3.15.4. When to File .................................................................................... 285 3.15.5. Fee.................................................................................................... 285 3.15.6. What to File ..................................................................................... 285 3.15.7. Burden of Proof ............................................................................... 286 3.15.8. No Appeal........................................................................................ 286

3.16. Termination of Asylum and Withholding............................................... 286 3.16.1. Grounds for Terminating Asylum.................................................... 286 3.16.2. Grounds for Terminating Withholding ............................................ 287 3.16.3. Procedures........................................................................................ 287

Asylum Office ......................................................................................... 287 BIA or IJ .................................................................................................. 288

3.16.4. Termination of Derivative Status..................................................... 288 3.17. Termination of Refugee Status ............................................................... 288

3.17.1. Procedure ......................................................................................... 288 3.17.2. No Appeal........................................................................................ 289

Chapter 4: Convention Against Torture .............................................................. 291

4.1. The Implementing Legislation.................................................................. 292 4.1.1. Regulations ........................................................................................ 293 4.1.2. Possible Bars to Relief....................................................................... 293 4.1.3. Judicial Review.................................................................................. 294 4.1.4. Detention............................................................................................ 294 4.1.5. Definitions ......................................................................................... 294 4.1.6. Number of Cases Granted.................................................................. 294 4.1.7. Prior Procedures for Relief Under the Convention............................ 294

4.2. Convention Against Torture—Key Provisions, U.S. Understandings, and Regulations .................................................................................................... 295

xxviii AILA’s ASYLUM PRIMER, SIXTH EDITION

4.2.1. The Definition of Torture .................................................................. 296

Intentional Act ......................................................................................... 296 Infliction of Severe Pain or Suffering...................................................... 298

Physical Torture................................................................................... 299 Mental Torture ..................................................................................... 299

Under the Custody or Control of the Offender ........................................ 300 For a Broad Array of Wrongful Purposes................................................ 300 By or Sanctioned by a Public Official ..................................................... 301

Public Official or Person Acting in Official Capacity......................... 301 Acquiescence ....................................................................................... 301

Not Arising Out of Lawful Sanctions ...................................................... 303 4.2.2. Nonrefoulement (Nonreturn) Provision ............................................. 305

“More Likely Than Not” Standard .......................................................... 305 Prospective Only...................................................................................... 306 No Internal Relocation Option................................................................. 307 Evidence to Support Claim...................................................................... 307

Credibility ............................................................................................ 307 All Evidence Relevant to the Possibility of Torture ............................ 308

Torture Only ............................................................................................ 311 No Bars to Protection............................................................................... 311

4.3. Procedures for Applying for Relief Under the Convention Against Torture..................................................................................................... 312

4.3.1. Who Is Eligible to Apply ................................................................... 312 Individuals Physically Present ................................................................. 312 Individuals Not Physically Present .......................................................... 313 Diplomatic Assurances ............................................................................ 313

4.3.2. Types of Relief Available .................................................................. 315 Withholding Under the Convention Against Torture .............................. 315 Deferral Under the Convention Against Torture ..................................... 315

4.3.3. Applying for Convention Against Torture Relief.............................. 316 Where to File ........................................................................................... 316 No Filing Fee ........................................................................................... 316

4.3.4. The Immigration Court Hearing ........................................................ 316 Time Period ............................................................................................. 317 Steps in the Decision-Making Process..................................................... 317

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Right to Appeal........................................................................................ 317 Administrative Review ........................................................................ 317 Judicial Review.................................................................................... 318

Continued Detention After Grant of Deferral of Removal ...................... 319 4.3.5. Termination of Convention Against Torture Protection.................... 319

Withholding of Removal Under the Convention Against Torture .......... 319 Deferral of Removal Under the Convention Against Torture ................. 320

Motion for Hearing on Termination .................................................... 320 Notice of Hearing ................................................................................ 320 Submission of Supplemental Information ........................................... 321 Scheduling of Hearing ......................................................................... 321 Department of State Comments........................................................... 321 De Novo Hearing................................................................................. 321 Burden of Proof ................................................................................... 321 Decision ............................................................................................... 321 Appeal.................................................................................................. 322 Termination at the Request of the Individual ...................................... 322 Diplomatic Assurances ........................................................................ 322

4.3.6. Motions to Reopen............................................................................. 323 Individuals with Final Orders of Deportation, Exclusion, or

Removal Before March 22, 1999.................................................................. 323 Individuals with Final Orders of Deportation, Exclusion, or

Removal After March 22, 1999 .................................................................... 323 Individuals with Requests for Convention Against Torture Relief

Pending with Legacy INS on or Before March 22, 1999 ............................. 324 No Final Decision ................................................................................ 324 Denial by Legacy INS ......................................................................... 324 Grant by Legacy INS ........................................................................... 324

4.3.7. Expedited Administrative Procedures ............................................... 324 Special Procedures for Stowaways Under INA §235(a) ......................... 325 Expedited Removal Under INA §235(b) ................................................. 325 Reinstatement of Removal Under INA §241(b) ...................................... 325 Expedited Removal for Persons Convicted of an Aggravated Felony

Under INA §238(b)....................................................................................... 326 Alien Terrorist Administrative Removal Procedures Under

INA §235(c).................................................................................................. 327

xxx AILA’s ASYLUM PRIMER, SIXTH EDITION

Terrorist Removal Proceedings Under INA §501 et seq. ........................ 327

4.3.8. Employment Authorization................................................................ 327 Employment Authorization When Removal Withheld Under the

Convention Against Torture ......................................................................... 327 Employment Authorization When Removal Deferred Under the

Convention Against Torture ......................................................................... 327

Chapter 5: Expedited Removal ............................................................................. 329 5.1. Statutory Provisions—INA §235(b) ......................................................... 330

5.1.1. What Is Expedited Removal .............................................................. 330 5.1.2. Who Is Subject to Expedited Removal .............................................. 330

Noncitizens Arriving at a Port of Entry with False or No Documents .... 330 Noncitizens Interdicted in International or U.S. Waters and

Brought to the United States......................................................................... 331 Noncitizens Who Have Not Been “Admitted” or “Paroled” into

the United States and Who Have Not Resided in the United States for Two Years or More ................................................................................. 331

Individuals Paroled into the United States After April 1, 1997............... 332 5.1.3. Who Is Not Subject to Expedited Removal ....................................... 332

Cuban Citizens or Nationals Arriving at a Port of Entry or Apprehended Within 100 Miles of the Border ............................................. 332

Pre–April 1, 1997, Parolees ..................................................................... 333 Unaccompanied Minors........................................................................... 333 Stowaways ............................................................................................... 333 Crewmembers .......................................................................................... 333 Individuals Seeking Entry under VWPP ................................................. 333 Noncitizens Paroled into the United States with Advance Parole ........... 334 Individuals with Additional Charges of Inadmissibility.......................... 334 LPRs, Asylees, Refugees, and Others with Additional Protections ........ 334

5.1.4. Credible Fear Standard ...................................................................... 334 5.1.5. Withdrawal of Application for Admission ........................................ 335 5.1.6. Judicial Review.................................................................................. 336

Habeas Corpus Proceedings .................................................................... 336 Limitations on Declaratory, Injunctive, and Equitable Relief ................. 336 Prohibition on Certification of a Class Under Rule 23............................ 336 Challenges to Validity of the System ...................................................... 336

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Relief........................................................................................................ 337 5.1.7. Consequences of Removal................................................................. 337 5.1.8. Expedited Removal and Credible Fear Statistics............................... 337

5.2. How Expedited Removal Works in Practice ............................................ 338 5.2.1. Primary Inspection............................................................................. 338 5.2.2. Secondary Inspection......................................................................... 339

Background.............................................................................................. 339 No Right to Representation ..................................................................... 339 Record of Sworn Statement—Form I-867AB ......................................... 339 Final Order............................................................................................... 342

5.2.3. Expression of Fear and Form M-444................................................. 342 5.2.4. Exceptions to Expedited Removal..................................................... 343

Applicants Permitted to Withdraw Their Applications for Admission ... 343 Factors.................................................................................................. 343 Unaccompanied Minors....................................................................... 344

LPRs, Refugees, Asylees, and U.S. Citizens ........................................... 344 Unaccompanied Minors........................................................................... 345 Pre–April 1, 1997, Parolees ..................................................................... 346 Stowaways ............................................................................................... 346 Crewmembers .......................................................................................... 346 Individuals Seeking Entry under VWPP ................................................. 346

5.2.5. Detention............................................................................................ 346 5.2.6. Credible Fear Interviews.................................................................... 348

Rest Period............................................................................................... 348 Location ................................................................................................... 348 Interviewers ............................................................................................. 348 Interview Procedures ............................................................................... 349 Role of Attorney, Representative, or Consultant..................................... 350 Interpretation............................................................................................ 351 Dependents .............................................................................................. 351 Confidentiality ......................................................................................... 352

5.2.7. Asylum Officer’s Credible Fear Decision ......................................... 352 5.2.8. Review by an IJ ................................................................................. 352

Standard of Review.................................................................................. 352 Procedures................................................................................................ 353

xxxii AILA’s ASYLUM PRIMER, SIXTH EDITION

Role of Attorney, Representative, or Consultant..................................... 353 Interpreters............................................................................................... 354 Decision ................................................................................................... 354 No Appeal................................................................................................ 354

5.2.9. Credible Fear Reinterviews Prior to Departure ................................. 354 5.3. Oversight of the Expedited Removal Process........................................... 355

5.3.1. Quality Assurance.............................................................................. 355 5.3.2. Government Accountability Office Reports ...................................... 356 5.3.3. U.S. Commission on International Religious Freedom Report ......... 357 5.3.4. Nongovernmental Organizations ....................................................... 359 5.3.5. United Nations High Commissioner for Refugees ............................ 361

Chapter 6: Other Forms of Relief ......................................................................... 363

6.1. “T” and “U” Visas for Victims of Trafficking in Persons........................ 364 6.1.1. T Visas ............................................................................................... 364 6.1.2. U Visas............................................................................................... 366

6.2. INA §209(c) Waiver for Refugees and Asylees ....................................... 368 6.3. Temporary Protected Status...................................................................... 369 6.4. Humanitarian Parole ................................................................................. 370

6.4.1. Who May File .................................................................................... 372 6.4.2. What to File ....................................................................................... 372 6.4.3. Fee...................................................................................................... 372 6.4.4. Where to File ..................................................................................... 372 6.4.5. When to File ...................................................................................... 373 6.4.6. No Appeal.......................................................................................... 373

6.5. ABC Settlement......................................................................................... 373 6.5.1. Eligibility for ABC Class Member Benefits ...................................... 374

Salvadoran Nationals Who: ..................................................................... 374 Guatemalan Nationals Who:.................................................................... 374

6.5.2. Exclusions from Class Member Benefits........................................... 375 6.5.3. Detention............................................................................................ 375

6.6. Nicaraguan Adjustment and Central American Relief Act ...................... 375 6.6.1. Cuba................................................................................................... 376 6.6.2. Nicaragua........................................................................................... 376 6.6.3. El Salvador......................................................................................... 377

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6.6.4. Guatemala .......................................................................................... 377 6.6.5. Former Soviet Union and Warsaw Pact Countries ............................ 378

6.7. Haitian Refugee Immigration Fairness Act .............................................. 378 6.8. Cuban Adjustment Act ............................................................................. 379 6.9. Cancellation of Removal .......................................................................... 381

6.9.1. Relief for Permanent Residents ......................................................... 381 Former §212(c) ........................................................................................ 381 New INA §240A(a) ................................................................................. 382

6.9.2. Relief for Nonpermanent Residents................................................... 383 Old §244 .................................................................................................. 383 New §240A(b) ......................................................................................... 383

6.10. Voluntary Departure ............................................................................... 385 6.10.1. Before the Conclusion of Removal Proceedings ............................. 386 6.10.2. At the Conclusion of Removal Proceedings .................................... 387 6.10.3. Consequences for Failure to Depart................................................. 388 6.10.4. Revocation ....................................................................................... 388

6.11. Registry................................................................................................... 388 6.12. Waiver of Inadmissibility Under INA §212(h)....................................... 389 6.13. Family-Sponsored, Employment-Based, and Other Means of

Regularizing Immigration Status in the United States.......................................... 390 6.13.1. Family-Sponsored Immigration....................................................... 391 6.13.2. Employment-Based Immigration..................................................... 391 6.13.3. Diversity Visas................................................................................. 392 6.13.4. Special Immigrant Status for Civilian Translators in Iraq or

Afghanistan....................................................................................................... 392 6.13.5. Noncitizens and the U.S. Military ................................................... 392 6.13.6. Nonimmigrant Visas ........................................................................ 392 6.13.7. Special Immigrant Juvenile Visas.................................................... 393

6.14. Citizenship .............................................................................................. 393 6.14.1. Derivative Citizenship ..................................................................... 393 6.14.2. Naturalization .................................................................................. 394

6.15. Private Bills ............................................................................................ 394

xxxiv AILA’s ASYLUM PRIMER, SIXTH EDITION

APPENDICES

Appendix 1—Interviewing and Intake 1A Interviewing Techniques ........................................................................... 399 1B Sample Intake Form .................................................................................. 403 1C Checklist for Bars to Asylum and Withholding of Deportation................ 407 Appendix 2—The Asylum Application 2A Checklist for Asylum Application (Form I-589)....................................... 409 2B Practice Pointers for Completing the Asylum Application....................... 413 2C Sample Declaration ................................................................................... 423 Appendix 3—Applying Affirmatively 3A Sample Letter to USCIS Service Center ................................................... 429 3B Checklist for Preparing for the Asylum Interview .................................... 431 3C Sample Closing Statement ........................................................................ 433 Appendix 4—Supporting Documentation 4A Checklist for Supporting Documentation.................................................. 439 4B Sample Index of Supporting Documentation for Asylum

Applicant from Iran................................................................................... 441 4C Sample Expert Affidavits (Country Conditions; Medical) ....................... 443 4D UNHCR Advisory Opinion on Cessation and Cancellation of

Refugee Status........................................................................................... 453 Appendix 5—Preparing for the Hearing 5A Practice Pointers on Direct and Cross-Examination of the Asylum

Applicant ................................................................................................... 477 5B Sample Motion, Sample Petition for Review, and Sample Brief.............. 483 Appendix 6—Contacts 6A Asylum Offices ......................................................................................... 527 6B Executive Office for Immigration Review................................................ 529 6C Addresses for Service of a Petition for Review ........................................ 537 6D ICE Office of the Principal Legal Advisor................................................ 541 6E Detention Facilities ................................................................................... 545 6F Selected Resources for Country Condition Information ........................... 547 6G Useful Websites ........................................................................................ 551 6H Torture Treatment Programs ..................................................................... 555 Appendix 7—Charts 7A Affirmative and Defensive Asylum Process Chart ................................... 561 7B Flowchart of Expedited Removal/Credible Fear Process ......................... 565

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7C A Comparison of the Forms of Protection Available Under U.S. Law............................................................................................................ 567

7D Temporary Protected Status ...................................................................... 569 7E Asylees’ Eligibility for Resettlement Assistance ...................................... 571 7F USCIRF Fact Sheet ................................................................................... 577 Appendix 8—Resources 8A Recommended Texts and Tools ................................................................ 579 8B Resource Availability................................................................................ 581 Appendix 9—Forms 9A Form I-589 and Instructions...................................................................... 583 9B Form I-730 and Instructions...................................................................... 609 9C Form I-765 and Instructions...................................................................... 619 9D Form I-131 and Instructions...................................................................... 571