FORM I-9 AND H-1B PORTABILITY

US Citizenship and Immigration Services (USCIS) has revised its Handbook for Employers: Instructions for Completing Form I-9 (M-274). Revised as of January 5, 2011, http://www.uscis.gov/files/form/m-274.pdf., the handbook includes expanded guidance on lawful permanent residents, refugees and asylees, and acceptable documents for employees in temporary protected status (TPS). An update on the most recent changes can be found here, http://www.cyrusmehta.com/news.aspx?SubIdx=ocyrus2011123211626

The handbook now states that an employee in valid H-1B status who changes (ports) to a new employer can begin to work with the new employer upon filing an H-1B petition with USCIS. The prior version of the handbook required the porting H-1B employee to obtain a Form I-797 (Receipt Notice) from USCIS before beginning work with the new employer. This approach created considerable delay because it often takes USCIS weeks to issue the official I-797. The new requirement is more consistent with INA § 214(n), which requires only a “filing,” and this can be proved through an overnight courier delivery confirmation rather than waiting for the I-797 receipt notice.

The new version of the handbook explains that a porting H-1B employee may begin employment by presenting his or her Form I-94/I-94A (Arrival-Departure Record) issued for employment with the previous employer, along with his or her foreign passport, as a List A document. The employer should write "AC21" on the I-9, record the date that the new H-1B petition was submitted to USCIS in the margin next to Section 2 of the I-9, and attach documentation as specified in the handbook.

Unfortunately, there is another aspect of portability that still remains unresolved. INA § 214(n) is broad enough to allow an H-1B worker to exercise portability even though he or she changed to another status. Thus, one who originally entered in H-1B status and then changed to F-1 student status can still “port” to a new job if a new employer files a petition for H-1B status, along with a request for change of status from F-1 to H-1B. In Keeping Track: Select Isues In Employer Sanctions and Immigration Compliance by Gary Endelman and Cyrus D. Mehta, http://www.cyrusmehta.com/News.aspx?SubIdx=ocyrus20101218204951&Month=&From=Menu&Page=2&Year=All#_ftn2, the authors make the following observation:

What does E-Verify have to say about work authorization during H-1B portability?

While this paper presents a general overview of E-Verify, the importance of a recent development in the delicate relationship between E-Verify and H-1B portability compels us to mention it if only in passing. In late October 2010, the Verification & Documentation Liaison Committee of the American Immigration Lawyers Association (AILA) received confirmation from E-Verify that it would no longer verify work authorization for an employee who is working for an employer under H-1B portability where the employee previously held H-1B status but has since held an intervening status. See AILA InfoNet Doc. No. 10102268 (posted Oct. 22, 2010). This came as a stunning development. In the past, many AILA members had relied upon the text of Section 105(a) of the American Competiveness in the 21st Century Act (AC 21), now codified at INA § 214(n), to advise that such employees were work authorized based on the clear language of the statute. However, in an unannounced change of policy, AILA recently received reports that E-Verify had been issuing final nonconfirmations for employees working pursuant to H-1B portability who currently hold another status, such as H-4 or F-1. The Committee requested clarification from E-Verify, citing the language in the statute which permits a beneficiary to work if he or she "was previously issued" an H-1B visa or status and meets the other requirements for portability. INA §214(n).

In response to the Committee's inquiry, E-Verify provided the following response:

The Office of Chief Counsel at USCIS has advised us that similarly situated individuals are not employment authorized. … The H-1B Portability Rule does not apply to a nonimmigrant who was in H-1B status at one time, but who is currently in another valid status and for whom a non-frivolous I-129 Petition to obtain H-1B status has been filed. … USCIS has interpreted Section 105 of AC21 (INA section 214(n)) as allowing those who are currently in H-1B status, or who are in a "period of authorized stay" as a result of a pending H-1B extension petition(s), to begin new employment upon the filing by the prospective employer of a new (H-1B) petition on the alien's behalf. USCIS guidance dated December 27, 2005, states that "porting under INA §214 does not require that the alien currently be in H-1B status as long as he or she is in a 'period of stay authorized by the Attorney General.'" That statement serves to clarify the earlier section specifically referring to an "H-1B alien" and should be read in the context of the particular example given: an alien who was in H-1B status and is now in an authorized period of stay based on a timely filed extension of H-1B status petition on the alien's behalf, and who then seeks to start working for a different H-1B employer upon that employer's filing of a petition. This interpretation is consistent with USCIS guidance to the public on its website (Nonimmigrant Services, H-1B FAQs, page 61) which states:

Changing employers - An H-1B worker can change employers, but first the new employer must file a labor condition application and then file a new H-1B petition. If the worker is already an H-1B, he or she can then begin the employment as described in the petition without waiting for USCIS to approve the petition. This is called a "portability provision," and it only applies to someone already in valid H-1B status. Based on this guidance, E-Verify queries will continue to result in nonconfirmations in similar cases."

The authors strongly believe that the USCIS interpretation underlying the E-Verify protocol is inconsistent with the clear language of AC 21.

THE ABSURDITY OF THE BIRTHRIGHT CITIZENSHIP ACT OF 2011

By Cyrus D. Mehta

When I first glanced at he Birthright Citizenship Act of 2011, H.R. 140, introduced by Representative Stephen King (R-IA) on January 5, 2011, http://www.opencongress.org/bill/112-h140/show, I figured that it was not worth my time to even write about it. I read it once more, and it dawned upon me that I could have some fun commenting on it and highlighting its absurdity.

The granting of automatic citizenship to a child born in the US is rooted in the first sentence of the Fourteenth Amendment: “All persons born or naturalized in the United States, and subject to the jurisdiction thereof, are citizens of the United States and of the States wherein they reside.” A list of resources can be found on Bender’s Immigration Bulletin at http://bit.ly/f5pX7U. And here is a good policy policy piece from AILA, http://www.aila.org/content/default.aspx?docid=34106 and a great blog with more resources, http://ijjblog.org/blog-mt/dan/2010/11/birthright_citizenship_under_t_1.html.


Nobody is attempting the extremely arduous task to amend the hallowed Fourteenth Amendment, although opponents of birthright citizenship are proposing a reinterpretation of the phrase “subject to the jurisdiction thereof” by denying the children of illegal immigrants and temporary residents from claiming US citizenship. Well over a century ago in United States v. Wong Kim Ark, 169 U.S. 649 (1898), the Supreme Court held in no uncertain terms:

The Fourteenth Amendment affirms the ancient and fundamental rule of citizenship by birth within the territory, in the allegiance and under the protection of the country, including all children here born of resident aliens, with the exceptions or qualifications (as old as the rule itself) of children of foreign sovereigns or their ministers, or born on foreign public ships, or of enemies within and during a hostile occupation of part of our territory, and with the single additional exception of children of members of the Indian tribes owning direct allegiance to their several tribes. The Amendment, in clear words and in manifest intent, includes the children born within the territory of the United States, of all other persons, of whatever race or color, domiciles here, is within the allegiance and the protection, and consequently subject to the jurisdiction of the United States.

H.R. 140 seeks to amend section 301 of the Immigration and Nationality Act, which replicates the 14th amendment, by not just depriving the children of illegal immigrants from automatically becoming citizens, but by narrowly limiting birthright citizenship to a person born in the US to parents, one of whom is –

1) a citizen or national of the United States;
2) an alien lawfully admitted for permanent residence in the United States whose residence is in the United States; or
3) an alien performing active service in the armed forces (as defined in section 101 of title 10, United States Code).

This bill, if enacted into law, would even deprive the child of a nonimmigrant parent from automatically becoming a US citizen who is lawfully in the US in H-1B status, and approved for permanent residence but for the fact that she is stuck in the employment-based preference backlogs for many years. What would be the status of such a child? H.R. 140 is silent. Would this poor child be rendered deportable the minute it is born by virtue of being an alien present in the US without being admitted or paroled under INA section 212(a)(6)(A)(i)? Or would the child be given a dependent H-4 status? What if the parents of the child have two different statuses – one on an H-1B visa and the other on a B-1 business visa? Will the child get the more solid H-4 status or the more transient B-2 status as a visitor for pleasure?

It is true that a diplomat, in accordance with Wong Kim Ark, is not subject to the jurisdiction of the US as a diplomat enjoys immunity from US law, but a child of such a diplomat born in the US is at least deemed to be a permanent resident. See Matter of Huang, Interim Decision #1472 (BIA May 27, 1965). On the other hand, it is not so apparent that conferring some kind of legal status short of citizenship is the intent of H.R. 140, which seeks to keep children in the same illegal status as their parents if born in the US.

The only historic exceptions to those subject to the jurisdiction of the US are diplomats and enemies during the hostile occupation of a part of US territory. Congress even passed legislation to ensure that children of all Native Americans are US citizens. See INA section 301(b). An illegal immigrant is undoubtedly subject to the jurisdiction of the US. If he commits a crime, he will surely be prosecuted. He can sue and be sued in US courts, and Uncle Sam gleefully collects his taxes and his contributions to social security (even if he is unable to claim it later on). You cannot liken an immigrant who has entered the US without inspection with the objective of finding work to a member of a hostile force occupying a part of the US. When a hostile force occupies any part of the US, the laws of the US are no longer applicable in the occupied territory. Even a terrorist who enters the US in a nonimmigrant status, such as on an F-1 student visa with an ulterior motive to commit an act of terrorism, unlike a member of a hostile occupying force, is subject to the jurisdiction of the US as she can be convicted or treated as an enemy noncombatant, and if she gives birth to child here, the child ought to be a US citizen under the Fourteenth Amendment.

Moreover, often times being legal or illegal is part of the same continuum. A thoroughly undocumented person, when placed in removal proceedings, can seek cancellation of removal under stringent criteria and become a permanent resident. Such a person whose visa has long since expired could get wrapped up in a romantic encounter with a US citizen, marry, and dramatically convert from illegal to permanent resident within a few months. At times, Congress bestows such permanent residency through section 245(i) or the LIFE Act, or a person can obtain Temporary Protected Status if a calamity were to befall her country. The following extract from the Supreme Court’s decision in Plyler v. Doe, 457 US 202 (1982), which held that undocumented children could not be deprived of a public education:

To be sure, like all persons who have entered the United States unlawfully, these children are subject to deportation. But there is no assurance that a child subject to deportation will ever be deported. An illegal entrant might be granted federal permission to continue to reside in the country, or even become a citizen.

Under H.R. 140, one who is so unlucky to have been born a day before his parent adjusted to permanent resident status would be in some kind of immigration purgatory. The Birthright Citizenship Act of 2011, along with similar proposals from states to issue two types of birth certificates, is not just unconstitutional but is also shockingly absurd!

ONE YEAR AFTER THE NEUFELD MEMO: CAN THE BEAST EVER BE TAMED?

By Cyrus D. Mehta

It has been one year since the issuance of the memo by Donald Neufeld of the USCIS, http://tiny.cc/z3ZU8 which sought to define the employer-employee relationship, especially when an employer places an H-1B worker at a third party client site. The Neufeld Memo is like a wild beast that can never be tamed, but can be kept content in captivity so long as it is well fed. Employers, especially in the IT consulting business, have been forced to change their business practices to ensure that they can establish control over the H-1B employee who is placed at a client site, and immigration attorneys have also learned to address and satisfy on the criteria in order to establish the employer-employee relationship. But there are instances where the wild beast can still try to escape and go on a rampage, and this has been demonstrated by Myriam Jaidi in her article on www.cyrusmehta.com regarding the recent problems faced by H-1B applicants when they apply for an H-1B visa stamp at a US Consulate during their vacation, http://bit.ly/hW7KwO. She writes, “it is not much of a surprise that the scrutiny for such companies has increased at consular posts as well. Consulates request tax returns, notarized employee lists, State Unemployment wage reports, etc., to verify that the employer exists and has the right to control the beneficiary’s work.”

In January 2009, a few days after the issuance of the Neufeld Memo, it appears that even the CBP got the virus and began questioning H-1B visa entrants arriving in the US, especially at Newark airport, http://bit.ly/iefgsy, and even subjected some of them to expedited removal. Even here, we have not heard of the same kind of summary removals after the incidents in January 2009 and this problems seems to have been contained. We are also pleased to report that CBP in Newark did indeed rescind an expedited removal order, and this individual recently returned back to the US in H-1B status from the same airport that issued the expedited removal just under a year ago. We thank Newark for doing the right thing, and hope that it will exercise its discretion wisely in other cases too, http://bit.ly/fFZ0al

CONSEQUENCES OF VISA BULLETIN CUTOFF DATE RETROGRESSION UNDER THE CHILD STATUS PROTECTION ACT

By David A. Isaacson

In recent months, the Visa Bulletin issued by the Department of State has shown a “retrogression” of priority dates in a number of Family-based categories. This means that the cutoff date determining which priority dates are early enough to make a visa number available to particular immigrants so that they can move forward with the process of seeking permanent residence, and which priority dates are not early enough, has moved backward in time rather than forward. Some people who were previously eligible – who appeared to have reached the front of the waiting line – will need to wait until their priority date once again becomes current to get a visa number. This retrogression, which affected the Philippines in the December 2010 Visa Bulletin, http://www.travel.state.gov/visa/bulletin/bulletin_5197.html, and then expanded to the cutoff dates for the rest of the world in the January 2011 Visa Bulletin, http://travel.state.gov/visa/bulletin/bulletin_5212.html, has the potential to create complications for those who seek to make use of the Child Status Protection Act (“CSPA”).

The CSPA protects certain applicants from losing their status as children even though they have turned twenty-one. The provision of the CSPA relevant here is section 203(h) of the Immigration and Nationality Act (“INA”), which provides, in part:

(h) RULES FOR DETERMINING WHETHER CERTAIN ALIENS ARE CHILDREN-
(1) IN GENERAL.-- For purposes of subsections (a)(2)(A) and (d), a determination of whether an alien satisfies the age requirement in the matter preceding subparagraph (A) of section 101(b)(1) shall be made using--
(A) the age of the alien on the date on which an immigrant visa number becomes available for such alien (or, in the case of subsection (d), the date on which an immigrant visa number became available for the alien's parent), but only if the alien has sought to acquire the status of an alien lawfully admitted for permanent residence within one year of such availability; reduced by
(B) the number of days in the period during which the applicable petition described in paragraph (2) was pending.
(2) PETITIONS DESCRIBED- The petition described in this paragraph is—
(A) with respect to a relationship described in subsection (a)(2)(A), a petition filed under section 204 for classification of an alien child under subsection (a)(2)(A); or
(B) with respect to an alien child who is a derivative beneficiary under subsection (d), a petition filed under section 204 for classification of the alien’s parent under subsection (a), (b), or (c).

Subsection 203(a)(2)(A) refers to a petition filed by a Lawful Permanent Resident (“LPR”) on behalf of his or her spouse or child, and 203(d) provides for “[a] spouse or child” to derive status from the primary beneficiary of various sorts of I-130 and I-140 petitions. In the context of both a “2A” preference petition for one’s child under 203(a)(2)(A), and an application by a derivative child under 203(d), one must determine whether the applicant for an immigrant visa or for adjustment of status still qualifies as a “child” by the time that he or she is eligible to obtain an immigrant visa or adjust status.

Pursuant to INA § 101(b)(1), a “child” ordinarily must be less than twenty-one years old. Thus, there is the possibility of “aging out”—of losing one’s status as a child by getting too old. INA § 203(h)(1) says that, as long as the person seeking to be classified as a child has sought to acquire LPR status within one year of visa availability, their age for these purposes is calculated by taking the age at the time of visa availability, and subtracting the time that the I-130 or I-140 petition was pending. In effect, it is as if the child stopped aging at the time the petition was filed, did not start again until the petition was approved, and then stopped again on the day that a visa number became available. (Beneficiaries of petitions that were pending on September 11, 2001, who would otherwise have aged out after that date, should also be able to subtract an additional forty-five days from their age pursuant to section 424 of the USA PATRIOT Act, as clarified by section 42.42, note 12.8(b.) of Volume 9 of the State Department’s Foreign Affairs Manual, available online at http://www.state.gov/documents/organization/87848.pdf.) If the CSPA-adjusted age under INA § 203(h)(1) is under twenty-one years, then the child – assuming that he or she otherwise qualifies as a “child”, such as by being unmarried – may still adjust status or obtain an immigrant visa under the 2A preference petition, or derivatively on the petition covered by INA § 203(d).

Retrogression complicates matters by creating the possibility that there may no longer be only a single “date on which an immigrant visa number becomes available”, but rather multiple such dates. If, for example, the Visa Bulletin for November 2010 said that a particular priority date was current for the first time, but the Visa Bulletin for January 2011 retrogresses the relevant cutoff date so that this priority date is no longer current, then there will be (at least) two dates on which an immigrant visa number becomes available for someone with that priority date. The first will be November 1, 2010, when the visa number initially became available. The second, following the retrogression, will be the first day of the future month on which the cutoff date finally moves far enough forward that the priority date is current again. In effect, the CSPA is looking to the date on which people pass through the door at the front of a waiting line, but the retrogression has caused many people who had just passed through the door to move backwards and go back outside the door. As the line moves forward, those same people will one day pass through the door yet again, creating a second date of visa availability.

USCIS has said, in a 2008 memorandum from Acting Associate Director Donald Neufeld (updating § 21.2(e) of their Adjudicators Field Manual) that is available online at http://www.uscis.gov/USCIS/Laws/Memoranda/Static_Files_Memoranda/Archives%201998-2008/2008/cspa_30apr08.pdf, that “[i]f a visa availability retrogresses, and an alien has already filed a Form I-485 based on an approved Form I-130 or Form I-140,” then USCIS will “retain the Form I-485 and note the date a visa number first became available.” When the visa number again becomes current, this original visa availability date, having been locked in by the prior filing of the Form I-485 adjustment application, will be used to calculate the CSPA-adjusted age. If, however, a Form I-485 is not filed before retrogression, but only within a year of when the priority date next becomes current, then the CSPA-adjusted age is “determined using the subsequent visa availability date.” (The filing of an I-485 may not be the only way to lock in a CSPA age, since as discussed in a recent article and blog post by Gary Endelman and Cyrus D. Mehta, http://cyrusmehta.com/News.aspx?SubIdx=ocyrus2010101843057&Month=&From=Menu&Page=4&Year=All and http://cyrusmehta.blogspot.com/2010/10/bia-continues-to-reaffirm-broad-sought.html, the Board of Immigration Appeals has indicated in unpublished decisions that one may seek to acquire lawful permanent residence for CSPA purposes without actually filing an adjustment application; that same logic ought to make it possible to lock in a CSPA-adjusted age before retrogression without actually filing the I-485, but relying on this would be very risky.)

Under the USCIS approach, therefore, you can lock in a child’s CSPA age if you file before a retrogression, but otherwise the child will in effect keep aging until the visa number becomes current again, and the child then seeks to acquire permanent residence within a year of this second date on which a visa has become available. The bright side of retrogression under the USCIS approach is that the subsequent visa availability date can give you another year in which to seek to acquire permanent residence, as long as the child’s adjusted age will still be under twenty-one on that second date.

The Department of State has indicated in Volume 9, Section 42.42 of its Foreign Affairs Manual, http://www.state.gov/documents/organization/87848.pdf, that its approach is similar but subtly different. Just as USCIS does with those who have filed an I-485, the Department of State will look to a child’s age at the first visa availability date if the relevant forms – which in the DOS context are the DS-230, Part 1, or a Form I-824 for a child following to join a principal applicant who adjusted in the United States – are filed within a year of that date and prior to the effective date of any retrogression. If not, the State Department will focus on whether the applicant had a full year to seek to acquire permanent residence before the retrogression:

In order to seek to acquire lawful permanent residence an alien beneficiary must actually have one full year of visa availability. If a visa availability date retrogresses . . . within one year of visa availability and the visa applicant has not yet sought to acquire LPR status, then once a visa number becomes available again the one year period starts over. The alien beneficiary’s age under the CSPA is redetermined using the subsequent visa availability date.

9 FAM 42.42 Note 12.7.

This apparent refusal by the State Department to give children a second chance after retrogression, if they had a full year to apply before retrogression and did not take advantage of it, may be stricter than the USCIS policy. Although the USCIS memo does not specifically address this situation, it strongly implies that whether a child has sought to acquire permanent residence within a year of visa availability can be measured from the second visa availability date that comes after a retrogression, regardless of how much time passed between the first visa availability date and the retrogression. That is, under the USCIS approach, if you miss your one-year deadline after the first visa availability date, you may get another chance if a retrogression followed by a second visa availability date occurs soon enough; under the Department of State approach, you will not.

Under either of these approaches, however, failing to move forward with the permanent residence process before a retrogressed Visa Bulletin takes effect can have dire consequences. If a child’s adjusted age is anywhere near twenty-one based on the first date of visa availability, then missing the opportunity to file before retrogression takes effect, and having to wait for a future forward movement to make a priority date current again after the retrogression, can easily lead to the child aging out. It is extremely risky to hope for a second visa availability date coming soon enough after a retrogression to allow a child’s adjusted age to remain under twenty-one. Therefore, it is essential that immigrants involved in CSPA-related cases affected by the retrogressions in the January 2011 Visa Bulletin act quickly to begin the process of seeking permanent residence before January 1.

(This post orginally appeared on www.cyrusmehta.com on December 26, 2010)

KEEPING HOPE ALIVE: PRESIDENT OBAMA CAN USE HIS EXECUTIVE POWER UNTIL CONGRESS PASSES THE DREAM ACT

By Gary Endelman and Cyrus D. Mehta

We are all extremely disappointed that the Senate blocked the DREAM Act on December 18. Even though a majority of the Senate voted for cloture, it was not enough. We need 60 votes for legislation to move forward, even when we have a majority of 55 out of 100. But do we need to wait endlessly for Congress to act? The answer is NO! Faced with unrelenting opposition from a radicalized Republican party that has declared war on immigrants, the Obama Administration is not powerless if it has the vision and the will to act.

We demonstrated in our article Tyranny of Priority Dates, http://scr.bi/i0Lqkz, that it is possible for the Executive to legalize the status of non-citizens without Congressional intervention to achieve something close to CIR. Our proposal for administrative solutions has become all the more relevant now that Congress has not passed the DREAM Act. DREAMERS must still lobby the administration for relief, which is has the ability to grant without going to Congress. Yes, the President does indeed have power to grant benefits administratively, such as parole and employment authorization. The Executive, under INA § 212(d)(5), has the authority to grant parole for urgent humanitarian reasons or significant public benefits. http://cyrusmehta.blogspot.com/2010/04/comprehensive-immigration-reform.html. Talented and dedicated DREAMERS who go to college, serve in the military or perform work of national importance under civilian direction are ideal candidates for invoking § 212(d)(5) under “urgent humanitarian reasons or significant public benefits.” Similarly, the Executive has the authority to grant employment authorization under INA §274A(h)(3), which defines the term “unauthorized alien” as one who is not “(A) an alien lawfully admitted for permanent residence, or (B) authorized to be so employed by this Act or by the Attorney General." Under sub paragraph (B), the USCIS may grant an EAD to DREAM kids who inadvertently fell out of status for no fault of their own and who only know America as their country.

The Executive’s use of parole, sua sponte, in such an expansive and aggressive fashion is hardly unique in post-World War II American history. The rescue of Hungarian refugees after the abortive 1956 uprising or the Vietnamese refugees at various points of that conflict comes readily to mind. While these were dramatic examples of international crises, the immigration situation in America today, though more mundane, is no less of a humanitarian emergency with human costs that are every bit as high and damage to the national interest no less long lasting. DREAM kids need not wait an eternity for Congress to come to the rescue.

The government has always had the ability to institute Deferred Action, which is a discretionary act not to prosecute or to deport a particular alien. Deferred Action is purely discretionary. They are both informal ways to allow continued presence in the United States. The INA never mentions deferred action. Neither does deferred action depends upon regulation. Deferred action is not mentioned in Title 8 of the Code of Federal Regulations but only in the old, and now inapplicable, Operations Instructions. The exercise of prosecutorial discretion to grant deferred action status is an expression of limited enforcement resources in the administration of the immigration law. It makes no sense to deport DREAM kids who have been educated in the US, and who have the potential to enhance the US through their hard work, creativity and determination to succeed. Giving these kids a chance will also help the economy by generating more taxable earnings and will also reduce the budged deficit by over $2.2 billion over a 10 year period, http://immigrationpolicy.org/just-facts/dream-act-supporting-us-economy-creating-opportunities-immigrant-students.

Deferred Action has also been applied to battered spouse and children self-petitioners who had approved I-360 petitions under the Violence Against Women Act, so that they could remain in the United States and obtain work authorization. In 2006, Congress, in recognition of this informal practice, codified at INA § 204(a)(1)(k) the grant of employment authorization to VAWA self-petitioners. Deferred Action has also been granted to U visa applicants. More recently, and prior to the passage of INA § 204(l), the DHS provided interim relief to surviving spouses of deceased American citizens and their children who were married for less than two years at the time of the citizen’s death. Mr. Neufeld’s memo, issued on June 15, 2009, provides extraordinary relief to spouses whose citizen spouses died regardless of whether the I-130 petitions were approved, pending or even not filed. Such beneficiaries may request deferred action and obtain an EAD. Then, on October 28, 2009, Congress amended the statute, and created § 204(l) to allow, inter alia, a widow who was married less than two years at the time of the citizen’s death to apply for permanent residence.

How about parole in place? Unaccompanied minors brought as young children to the United States without inspection deserve such relief. Take a look at Section 235(a)(1) of the INA. Know what it says? It reminds us that these DREAMERS who are physically in this country without formal inspection or legal admission can be deemed to be applicants for admission. That is how “parole in place” works. By indulging in the legal fiction that these DREAMERS are actually knocking at the golden door and asking to be let in, the Obama Administration can make them eligible for adjustment of status to legal permanent residen (if they qualify as immediate relatives, such as a spouse of a US citizen) through expansion of the parole mechanism. The USCIS informally allows spouses of military personnel who would otherwise be unable to adjust under INA § 245(a) if they were neither “inspected and admitted or paroled” to apply for “parole in place.” This administrative solution, where a non-citizen is fictitiously paroled, and thus rendered eligible for adjustment as an immediate relative of a US citizen under § 245, allows our troops to concentrate in the battlefield without being distracted about whether their spouses can or cannot remain in the US.

Moreover, as suggested in The Tyranny of Priority Dates, there is nothing to prevent the administration from granting similar parole benefits to undocumented non-citizens in the United States, along with employment authorization, who are waiting for their priority dates to become current or who meet certain sympathetic criteria such as DREAM children. The President can achieve something close to the DREAM Act and even Comprehensive Immigration Reform without going through Congress and without violating the Separation of Powers doctrine. While some may argue that there is no express Congressional authorization for the Executive to enact such measures, the President may act within a “twilight zone” in which he may have concurrent authority with Congress. See Youngstown Sheet & Tube Co. v. Sawyer, 343 U.S. 579, 635 (1952) (Jackson, J., concurring).

There is no bar in law or logic to a decision by the Department of Homeland Security that it will not seek to deport or remove anyone here without color of law who would qualify for DREAM Act benefits. Only in those instances where relief was available would ICE issue a Notice To Appear. Refraining from seeking removal of DREAMERS in the public interest would be entirely consistent with the reasons why the Administration lobbied the Congress so hard in the first place and hopefully will continue to do so. Be prepared for Steve King, Lamar Smith and their nativist allies in the Senate to react. They can threaten to use the power of the purse to curb these regulatory initiatives. Be strong and of good courage! Mr. President, keep your veto pen close at hand. Until we get a new law, justice will have to be squeezed out of the one we have now. The fact that Congress will not act does not mean that the DREAM is dead; it simply is deferred, while we go about its realization by other means.