childsbestinterest.pdf

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I Cd’ B I? q

March 2010

International Human Rights Law ClinicUniversity of California, Berkeley

School of Law

Immigration Law ClinicUniversity of California, Davis

School of Law

Chief Justice Earl Warren Instituteon Race, Ethnicity and Diversity University of California, Berkeley

School of Law



In the Child’s Best Interest?

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March 2010

International Human Rights Law ClinicUniversity of Ciforni, Berkeey, Soo of L

Chief Justice Earl Warren Institute on Race, Ethnicity and DiversityUniversity of Ciforni, Berkeey, Soo of L

Immigration Law ClinicUniversity of Ciforni, Dvis, Soo of L



INTERNATIONAL HUMAN RIGHTS LAW CLINIC, UNIVERSITY OF CALIFORNIA, BERKELEY, SCHOOL OF LAW

Te Interntion Hn Rits L Cini (IHRLC) esins n ieents innovtive nrits rojets to vne te stre for jstie on bef of inivis n rinize o-

nities tro voy, reser, n oiy eveoent. Te IHRLC eoys n interisiinryoe tt everes te inteet it of te niversity to rovie innovtive sotions to eerin n rits isses. Te IHRLC eveos obortive rtnersis it reserers, sors, nn rits tivists orie. Stents re inter to ses of te IHRLC’s ork n irenree exeriene enertin knoee n eoyin strteies to ress te ost rentn rits isses of or y. For ore infortion, ese visit: .nritsini.or.

CHIEF JUSTICE EARL WARREN INSTITUTE ON RACE, ETHNICITY AND DIVERSITY

UNIVERSITY OF CALIFORNIA, BERKELEY, SCHOOL OF LAW

Te Cief Jstie Er Wrren Institte on Re, Etniity n Diversity (Wrren Institte) is ti-isiinry, obortive ventre to roe reser, reser-bse oiy resritions, n rri-

r innovtion on isses of ri n etni jstie in Ciforni n te ntion. Te Wrren Institte’sission is to ene te ost it tois rete to ivi rits, re n etniity in ie rne of e n bi oiy sbjet res, roviin vbe inteet it to bi n rivte setoreers, te ei n te ener bi, ie vnin sory nerstnin. Centr to its et-os re onerte eorts to bi bries onnetin te or of reser it te or of ivi tionn oiy ebte so tt e infors te oter, ie reservin te ineenene, ity n re-ibiity of te ei enterrise. For ore infortion, ese visit: .rreninstitte.or.

IMMIGRATION LAW CLINIC, UNIVERSITY OF CALIFORNIA, DAVIS, SCHOOL OF LAW

Te Iirtion L Cini (ILC) rovies e reresenttion to inient non-itizens in reovroeeins before U.S. Iirtion Corts, te Bor of Iirtion Aes, n feer orts,

inin te Nint Cirit Cort of Aes. Te ILC rovies tis neessry servie to Nortern Ci-forni’s iirnt onities, oerin etion n e servies to o-inoe iirnts fin eorttion ie enbin stents to in rti, re-or exeriene. ILC stents tke on jor sets of itition, inin interviein ients n itnesses, rerin e briefs, rftin eins n otions, n rin oex e isses. ILC stents rery ont ntriztionorksos n ornize vrios oter onity e orksos. Reonizin te inrese obo-rtion beteen riin n iirtion enforeent enies, te ILC s been t te forefront of inient etention n eorttion efense. For ore infortion, ese visit: ..vis.e.



Contents

Exetive Sry ............................................................................................................................................1

Introtion ........................................................................................................................................................3

Nber of U.S. Citizen Ciren Aete By Deorttion of n LPR Prent .........................................4

Costs of Detention n Deorttion of LPR Prents ....................................................................................5

Le Protetion for te Most Vnerbe Mebers of Soiety ....................................................................6Aition of te Prinie of Fiy Unity to Deorttion of LPR Prents ...........................................6

U.S. Deorttion L n Poiy So Be Infore by Eroen Cortof Hn Rits Jrisrene ................................................................................................................9

Consions n Reoentions ..............................................................................................................11

Aenix ...........................................................................................................................................................13

Notes ..................................................................................................................................................................14

Ators & Aknoeeents .......................................................................................................................19



1

Conress is onsierin oreensive overof te ntion’s iirtion s ore tn eefter te entent of strit iirtion esres.

Lkers so tke tis oortnity to rerte ntion’s istori oitent to fiy nity byressin te isrete rovisions tt rrentynerine it. Crrent U.S. iirtion s n-te eorttion of f ernent resient (LPR)rents of tosns of U.S. itizen iren, itotroviin tese rents n oortnity to eneteir fore sertions. Tro ti-isiinrynysis, tis oiy brief exines te exerienes of U.S. itizen iren ite by te fore eort-tion of teir LPR rents n rooses ys to reforU.S. onsistent it oesti n interntion

stnrs ie to irove te ives of iren.Tis reort ines ne, ineenent nysis

of U.S. Dertent of Hoen Serity (DHS)t. We estite tt ore tn 00,000 irenve been ete by LPR rent eorttionbeteen 7 n 2007, n tt t est 88,000 of ite iren ere U.S. itizens. Moreover, ornysis estites tt roxitey ,000 i-ren ere ner te e of en teir rent seorte. In ition to tese iren, tis nysisestites tt ore tn 27,000 oters exerienete eorttion of n ieite fiy eber os n LPR.

WE PROPOSE THAT THE UNITED STATES:

»» Restore»judicial»discretion»in»all»cases»involving»the»deportation»of»LPRs»who»have»U.S.»citizen»chil-dren»in»order»to»give»parents»a»meaningful»opportu-nity»to»present»evidence»of»the»adverse»impact»that»their»deportation»will»have» on» their»U.S.»citizen»children.»Tere is bi enin before Conress,te Ci Citizen Protetion At (CCPA), tto restore isretionry tority to iir-tion jes to eterine eter non-itizenrent of U.S. itizen i so be orerereove fro te Unite Sttes. Tis bi orestore jii eision-kin oer en tebest interests of U.S. itizen i n in tebne. We reoen tt Conress ove to

ent te CCPA, eiter one or s rt of o-reensive iirtion refor eistion.

»» Revert»to»the»pre-1996»denition»of»“aggravated»

felony.”» Before te eistive nes in ,te rvte feony teory s reserve forte ost serios oenses. Te esintion of onvition s n rvte feony rests in inei-ibiity for isretionry reief reress of teeities invove. Wit s rve onseenesfor LPR rents n teir U.S. itizen iren,Conress so en te rrent rvtefeony enition n revise it to ine ony seri-os feony oenses.

»» Collect» data» on» U.S.» citizen» children» impacted»

by»deportation»of»an»LPR»parent.» DHS sooet infortion on te nber, e, ener,n oter eoris rerin U.S. itizeniren o re serte fro one or bot LPR rents s rest of rent eorttion. DHSso so reor eter te U.S. itizen iof te LPR reins in te Unite Sttes or o-nies is or er eorte rent. Ineenentreser so be oissione to sty tesyooi, etion, soi, n eonoiit of sertion on U.S. itizen iren.

»» Establish»guidelines»for»the»exercise»of»discretion»in»

cases»involving»the»deportation»of»LPRs»with»U.S.»citizen»children. U.S. iirtion s reonizett iren onstitte vnerbe ro ttreires sei rotetion. Te Exetive Oefor Iirtion Revie so isse ieinesibe in ses in i isretion is vi-be to ssist iirtion jes in onsier-in te it on itizen iren of eortin n LPR rent. Iirtion jes so soreeive rorite trinin fro exerts to e-tey bne te nees of U.S. itizen ireninst te interests of te overnent in reov-in ertin LPRs fro te Unite Sttes. Teestbisent of ieines n ess to trinin for jes is neessry to ensre resone ot-oes tt o not invertenty se isroor-tionte r to U.S. itizen iren.

x



2

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Snn Cey* st t ini tbe t is fter’s ose in Ciforni’s Centr Vey, tree of is sons tis sie, n tke bot te ftre.

“I kne t I i s ron, n I i not nt to t te re,” Snn si. “I onesty nevertot I o be eorte. I been ere for so on, ore tn 20 yers, so I tot I o oto ji n tt o be it.”

Snn, fter of ve, e to te Unite Sttes in 8. He n is fiy e Cboi en teKer Roe seize oer in te i-70s n ne brt enoie tt eft roxitey. iion eoe e in te ontry’s infos “kiin es.” His fiy ese to refee ross te borer in Tin, n ten, in 8, te U.S. overnent resette te in te UniteSttes. Snn s bit sessf ife in is ote ontry. Snn rte fro i soo, servein te U.S. Ary, rrie, fon stey ork s eni, n ve iren, of o reU.S. itizens.

oy, oever, is ftre is in in jeory. Snn its eorttion to Cboi, n isiren, rnin in e fro to 8, risk osin teir fter. Te overnent ssie Snn’siseenor oesti vioene onvition restin fro t it is ife s n “rvte feony”bese Snn reeive -y sentene. A sentene of jst one y ess o ve voie tervte feony ssition n iven Snn te oortnity to erse n iirtion je notto eort i bese of te it it o ve on is iren. Hoever, bse on tt one-yierene, te enie te iirtion je te oer to fy er Snn’s se n to onsier te fts before orerin i reove.

Aorin to Snn, is ife bin ition. Teir rrie sere, n in 2002, teoie e to Snn’s oe to sette iste. Poie re Snn it oesti bttery. He ete

resonsibiity, ee ity, n serve is tie. After is reese, Ciforni fiy ort reSnn stoy of is ve iren bese it eterine e s ost ie to re for te.

For for yers fter is reese, Snn n is iren ent on it teir ives. Bt in 200, Snnost is reen r n ie for reeent. Wen ke rrive fro te feer overnentore tn yer ter, Snn tot it s is reeent reen r. Inste, it s ortoent inforin Snn tt e s fin eorttion to Cboi bese of is ve-yer-oiseenor onvition.

In srin 200, U.S. Iirtion n Cstos Enforeent oers e to is oe n rrestei. Tey e Snn for six onts in iirtion etention. Te iirtion je eventyeterine tt ner te strit enition Conress iose in , Snn’s onvition onstitte n

rvte feony. Uner te , te je no oie bt to orer Snn’s reov.oy, Snn is bk oe it is fiy ony bese te overnent s not yet been be to

obtin trve oents fro Cboi for is retrn. Snn is ivin in iirtion ibo. He obe eorte t ny tie. Wen tis ens, Snn fers is iren i ser ost.

“Wt o en to is iren if bot rents ere one?” si P, Snn’s broter. “If yove is broken fiy, is tt fiy, or jst te rennts of one?”

*Te nes of inivis interviee in tis oiy brief ve been ne to rotet teir rivy.

A Family Portrait



3

Introduction

Conress is onsierin oreensiveover of te ntion’s iirtion s oretn ee fter te entent of stritiirtion esres. Lkers so tke

tis oortnity to rer te ntion’s istorioitent to fiy nity by ressin teisrete rovisions tt rrenty nerineit. For exe, te Unite Sttes rrentyeorts f ernent resient (LPR) rents of tosns of U.S. itizen iren,itot roviin tese rents n oortnityto ene teir fore sertions. Tro ti-isiinry nysis, tis oiy brief exines te exerienes of U.S. itizen irenite by te fore eorttion of teir

LPR rents n rooses ys to refor U.S. onsistent it oesti n interntionstnrs ie to irove te ives of iren.

LPRs, so knon s reen r oers, vee stts to ive n ork in te Unite Sttes.Soe reen r oers enter s infnts or yon iren. More tn 20,000 LPRs rrentyserve in te U.S. iitry.2 Wie ny reenr oers re eiibe to beoe U.S. itizenstro ntriztion, iirtion exerts

sete tt ny o not tke vnte of tis otion bese of te efty fees reire toy or istken beief tt teir “ernentresient” stts rotets te fro eorttion. In ft, LPRs ke nery 0 erent of toseo re eorte fro te Unite Sttes. MostLPRs fin eorttion on te bsis of riinonvitions ve rey serve teir riinsentenes.

In , Conress sse te Antiterrorisn Eetive Det Penty At (AEDPA) nte Ie Iirnt Refor n IirntResonsibiity At (IIRIRA),7 i toeterintroe ition iirtion restritionson LPRs onvite of ries. Te exnete teory of ries esinte s rvtefeonies to enoss bro rne of inorn non-vioent oenses.8 Lf ernentresients onvite of n rvte feony resbjet to ntory eorttion n oter

severe iirtion onseenes. Crrenty, onvition y f into tis teory itotbein feony n itot invovin nyrvte irstnes.0 Even exnin s rie fro n inivi’s reor oes not reovete iirtion onseenes it triers.

Non-Violent Aggravated Felonies

Uner te eistion, te fooin non-vioent ries y onstitte rvtefeonies:» Non-vioent teft oenses» Non-vioent r oenses » Forery » Reeit of stoen roerty

» Perjry » Fr or eeit, ere te oss to te

viti exees $0,000 » x evsion, ere te oss to te

overnent exees $0,000

Sore: INA § 0()(), 8 U.S.C. § 0()().

Unti , ost f ernent resientsit riin onvitions fin eorttion

ere entite to erin before n iirtion je o o bne n inivi’sriin onvitions inst is or er ositiveontribtions to te Unite Sttes.2 At tiserin, n iirtion je o onsier teit tt eorttion of n LPR rent ove on U.S. itizen iren n, if rrnte,o eie to o n LPR to rein inte ontry. Hoever, te iirtions eiinte s erins for LPRs fin eorttion bse on onvitions ssie s

rvte feonies. Desite is by U.S. Iirtion n

Cstos Enforeent (ICE) tt it foseson eortin te “orst of te orst” riinoeners, nysis of t fro te U.S.Dertent of Hoen Serity (DHS) byte nonovernent orniztion Hn RitsWt fon tt ore tn 8 erent of LPRsre eorte for retivey inor, non-vioent



4

’s bs s?

oenses.15 Our independent analysis of data fromDHS estimates that more than 100,000 childrenhave been aected by parental deportationbetween 1997 and 2007, and that at least 88,000of these children were U.S. citizens.

Against this backdrop, this policy brief drawsattention to the impact of the 1996 immigrationlaws on U.S. citizen children of LPR parents. U.S.Customs and Border Patrol recently conrmedthat on October 1, 2009, it increased eorts toidentify LPRs with criminal convictions.16 Itis likely that a greater number of LPRs will be

detained and placed into removal proceedings.Tis analysis is based on data provided by

DHS as well as the 2008 American CommunitiesSurvey, a representative survey of the U.S.population administered by the U.S. CensusBureau. We have also reviewed relevant socialscience literature as well as international anddomestic laws and standards regarding familyseparation. We interviewed several LPRs andtheir family members living in California whohave been aected by deportation or potentialdeportation.17 We note that all children,regardless of immigration status, may be impactedby forced separations from their parents.Although U.S. citizen children are the focus of this research, this policy brief does not assert thatother children are any less deserving of protectionunder domestic law.

Numer of U.S. Citizen Children

Aected By Deportation of anLPR Parent

In the ten-year period between April 1997 andAugust 2007, the United States deported 87,884LPRs for criminal convictions at an averagerate of approximately 8,700 per (seeFigure 1).18

Lawful permanent residents deported during this time period lived in the United States anaverage of approximately ten years, long enough

to form families (see Table 1). Te majority(53 percent) of these LPRs had at least onechild living with them. In the ten-year perioddescribed above, the United States deported thelawful permanent resident mother or father of approximately 103,000 children. At least 88,000(86 percent) of these children were U.S. citizens.Moreover, approximately 44,000 of these childrenwere under the age of 5 when their parent wasdeported. In addition to these children, more

than 217,000 other immediate family members—including U.S. citizen husbands, wives, brothers,and sisters—were aected by the deportationof LPRs. See the Appendix for a detailedexplanation of the methodology used to estimatethe length of residency and family composition of deported LPRs.

Fg 1:» Lg P Rss (LPRs) D b Y

Source: U.S. Department of Homeland Security.

Note: Data for 1997 includes only the months of April–December and data for 2007 includes only the months of January–August.

year



5

Costs of Detention andDeportation of LPR Parents

Inivis o re etine by DHS re instoy enin resotion of teir reov ses.ICE sens roxitey $2. biion eyer on Detention n Reov Oertions, terest sine ortion of its nn bet. Of

tis tot, roxitey $.77 biion is sentinrertin iirnts in o jis, ienoter $22 iion is sent on e roeeinsrete to inivi reov erins.20 BeseLPRs ke n estite 0 erent of tose eorte fro te Unite Sttes,2 it nbe resonby sse tt t est 0 erentof ICE’s etention n reov bet, orroxitey $2 iion e yer, is sentetinin n eortin f ernent

resients, f of o ve iren ivin it te.

By reovin f ernent resientrent of U.S. itizen i, te overnent soretes iense seonry soi n eonoieets. Wie itte t exists on te it onU.S. itizen iren of eortin LPR rents, ret e of t exists rerin te itof reovin rent fro te oe e to

inrertion. Tese t so tt iren of inrerte rents re ore ikey toexeriene syooi isorers n to exibitbevior robes.22 Ciren of inrerterents re ore ikey to exeriene trobe insoo, inin oor res n beviorrobes, tn iren of non-inrerterents. One sty fon tt 70 erent of

iren ner e it inrerte otersexibite oor ei erforne.2 Reovof n LPR rent inreses te ikeioo of oor etion otoes for iren, ein to reter nber of U.S. itizens o y bereete to o-inoe eoyent s ts.

It is so ikey tt ny U.S. itizeniren serte fro n LPR rent iser eonoi strin, reirin itionbi ssistne for te fiies eft bein.

A reent sty by te Urbn Institte on teonseenes of rrest, etention, n eorttionof iirnt rents on iren in te UniteSttes fon tt rent rrest rests in severeeonoi rsi for fiies bese teyose breinner.2 Te sty fon tt ostoseos exeriene oer inoes, osin instbiity, n foo insieny.2 Hoseossrveye in six ities in te sty reorte

C D LPR P

Tb 1:» Nb LPR D E C/F MbI 1997–2007

ot Nber of LPRs Deorte 87,88

Estite erent of LPRs tt t est one i ivin it te %

Estite ot Nber of Ciren Uner 8 Ite by Deorttion of n LPR Fter or Moter

0,0

Estite ot Nber of Ciren Uner Ite by Deorttion of n LPR Fter or Moter

,22

Estite ot Nber of U.S. Born Ciren Uner 8 Ite by Deorttionof n LPR Fter or Moter

88,27

Estite ot Nber of Ieite Fiy Mebers Ite by Deorttionof n LPR in Hoseo

27,08

Sore: U.S. Dertent of Hoen Serity. Estites of te nber of iren n fiy ebers re bse

on erent onene interv n ere erive fro te 2008 Aerin Conities Srvey. See Aenix foretis.



6

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sinint vere ro in inoe fter rent’s rrest.2

Te Urbn Institte fon tt te vstjority of ete fiies reeive soe sort of ssistne fro fiy n friens, yet inforsort s not sstinbe for fiies fin

on eorttion roeeins.27 More tn f te fiies stie reie on rivte or binni sort to sstin te oseoinin foo, rent, n tiity ssistne.28 Pbi benets for U.S. itizen iren eteine s efre, Seent NtritionAssistne Pror (forery knon s te FooSt Pror), te Seent NtritionPror for Woen, Infnts n Ciren, nfree n ree-rie soo es.2

Legal Protection for the MostVulnerale Memers of Society

Interntion n rits n oestifiy reonize iren s on teost vnerbe ebers of soiety. Neryevery jor n rits trety reonizes tenee for sei rotetion of iren.0 In teUnite Sttes, iirtion is overne ririyby feer . Neverteess, n ritsfreork rovies sef ens for nyzin teit of eortin f ernent resientrents n sies n iortnt sore of nors tt y ie oesti kers inteir eorts to refor te U.S. iirtionsyste.

Interntion n rits treties reonizete fiy s te ntr n fnent nitof soiety. Te Interntion Covennt on Civin Poiti Rits (ICCPR) rovies tt te

fiy is “entite to rotetion by soiety nte Stte.”2 Te rit to fiy so reirestt sttes tke rorite esres “to ensrete nity or renition of fiies.” As s,sttes nnot rbitrriy or nfy interfereit tis essenti soi nit. Te UniteNtions Hn Rits Coittee, ioversees stte oine it te ICCPR, sfon tt sttes st reset te rit to fiy

nity in ses ere te eorttion of rento rbitrriy interfere it tis rit. TeConvention on te Rits of te Ci soensrines te rinie tt in e tions,“te best interests of te i s be riryonsiertion.”

U.S. feer n te s of ny sttesso rotet fiy interity. Ls in fty sttesreire te se of te best interests of te istnr in eisions “rerin i’s stoy,eent or riti ife isses.” Feer ss s te Fiy Mei Leve At so rotette rits of inivis to tke eve fro teir jobs to re for fiy eber.7 Certin sttes,s s Ciforni, ve so sse siir fiyeve s tt o rents to tke ni eveto tten teir i’s soo tivities.8

Application of the Principle of Family Unity to Deportation of LPR Parents

In rftin te Iirtion n NtionityAt of 2 (INA), Conress’s riry roses to ensre te nition of ixe fiiesof U.S. itizens n iirnts. Tis rioritys reiterte in 8, by te Seet Coission

on Iirtion n Refee Poiy, boyointe by Conress to sty iirtionoiies n reoen eistive refor,i stte:

[R]enition . . . serves te ntioninterest not ony tro te nenessof te oiy itsef, bt so tro terootion of te bi orer n ebein of te ntion. Psyooiy nsoiy, te renion of fiy ebers

it teir ose retives rootes teet n efre of te Unite Sttes.0

Corts so ve reonize te iortneof te INA’s esis on fiy nity. In te77 se Fiallo v. Bell, te U.S. Sree Cortreonize tt te eistive istory of teINA “estbises tt onression onern sirete t ‘te robe of keein fiies of Unite Sttes itizens n iirnts nite.’”



7

Neros ete orts ve re tisinterrettion of te INA s onsistent it itso of reventin te “ontine sertion of fiies.”2

Hoever, rrent iirtion s nerinetese fontion rinies. In ore tn f

te ses oente in te Urbn Instittesty, iren reine in te Unite Sttesfter te eorttion of rent. Snn’s storyexeies o iirtion s interfereit fiy nity. Wen Snn s etine, issister, i soo teer, took re of Snn’ster, n is yoner broters took re of Snn’s for sons. Te iren ontine to ive inserte oes.

“Notin s te se en e s one—

Snn s te e tt e tis fiy toeter,”si is broter, P. Snn’s sister si se ferst i en to er broter if e retrns toCboi. Se beieves tt is bsene i ter of te rt.

Snn s orere reove itot teoortnity for erin to onsier te eetsis eorttion o ve on is ve U.S. itizeniren, rnin in e fro to 8. Hs erin been vibe, te iirtion je o ve onsiere te it of Snn’s

eorttion on is eenent U.S. itizeniren, onsistent it te INA’s oitentto fiy nity.

IMPACT ON HEALTH

Reovin f ernent resient rentfro te oe so netivey its teysi n ent et of U.S. itizeniren. Te rit to et is iey reonizeby neros n rits treties. Te soe of

tis rit s been e to ine te “enjoyentof te iest ttinbe stnr of ysi nent et.” Te rst ost-Wor Wr IItrety to estbis te rit to et, te Constittion of te Wor Het Orniztion,esribes “et” s “ stte of oete ysi,ent, n soi e-bein n not erey tebsene of inrity.”

A P F U D LPR P

Impacts of Forced Separation

Eiio Mrtinez s been reen r oersine e e to te Unite Sttes froMexio s toer. His robes strte

en e s 8 yers o. Poie ikei it soe friens n re iit ie ossession of rer. Eiioee ity, n je sentene ito six onts in ji. As onition of isrobtion, te je orere Eiio to styy fro n ebers.

For tree yers, ife ontine s nor.Eiio bot ose, rrie Cty, U.S.itizen, n strte is reer s eer.

Bt in 2008, Eiio ot t ork frois sister syin tt er sbn beenrreste. Se ske Eiio to sto by erose to ek on er iren. Wen Eiioent to is sister’s ose, te oie sei of “ssoitin it n eber”—siy by visitin is broter-in-’sose—n tey rreste i for viotin is roe. Eiio s jie for tirty ys. Jst before e s see for reese,ois to i e n “Iirtion

n Cstos Enforeent o.” As rest,e s trnsferre to noter ji ere es been e in te stoy of te U.S.Dertent of Hoen Serity for nery yer n f.

Drin tis tie Cty n teir irenve been serte fro Eiio. “I ve to be n o—I jst breyet by,” Cty si. Se s nsre o toexin teir fter’s bsene to teir iren.

“I in’t nt to te te kis t rst, bese Itot e o be oe soon,” se si.“Bt fter ie, it been so on ttI to te te soetin.” Wen se ite er -yer-o son, se exine: “[He]to e I so o to te ji for oeof ys to tre ositions, so e o seeis .”



8

’ b

In reent yers, Conress s sse nberof s ie t rootin te efre of iren on isses retin to et, etion,n rotetion fro rie.7 For exe, te NoCi Left Bein At reires soos to trk te ei erforne of iite-Enis

sekin iren n oter ros tt ineiren of iirnts.8 Poiies reirin te eorttion of LPR rents of U.S. itizeniren irety ontrit te roses of tese s n e te efre of tese irent risk.

Avibe t on iren ose rents rebsent s rest of inrertion sest tttese iren y ser nber of etrobes. Sties of tis otion so ttiren o itness rent’s rrest oftenser syooi r, inin ersistentnitres n sbks. Aitiony, stiesve son tt inrertion of rents rests inte introtion of ne reivers in i’s ife,i sininty inreses te ikeioo ii be vitiize.0

Liite reser s been onte ttoents verse et its on irenivin in te Unite Sttes en rent iseorte. Antroooists Mreo n Cro

Sárez-Orozo reenty oete stytt exine 8 ery oesents in teUnite Sttes fro Cin, Centr Aeri,te Doinin Rebi, Hiti, n Mexio, 8erent of o exeriene sertion froone or bot rents for extene erios beseof iirtion, ivore, or et. Mreon Cro Sárez-Orozo fon tt irenfro serte fiies ere ore ikey to sosins of eression tn iren o notbeen serte.2 Teir t so inite ttsertions fro ove ones, rtiry rents,e to feeins of oss n sness in bot tsn iren.

Te Urbn Institte sty so fonsinint bevior nes on ostiren o exeriene iirntrent sertion. A jority of te irenisye nes in s bsi res s seein,

etin, n ontroin teir eotions. Moretn f rie ore freenty n ere orefri, n ore tn tir ere ore nxios,iny, itrn, nry, or ressive fooin teir rent’s rrest. Ato te severity of tese syooi its tene to erese

in te on ter, t est 0 erent of irenexibite sins of tese bevior nes fternine onts.7

Cristine Sn, Cinese iirnt oives in te Sn Frniso By Are, rrive inte Unite Sttes in , to bein er neife it er sbn, U.S. itizen. Hoever,te rrie s nsessf n te oeivore in 8. In 2007, s Cristine retrnefro tri to Cin to visit retives, iirtionois ske bot er riin istory. Seitte tt se to rior soiftin oenses. As rest, te ois seize er reenr n to er tt se o be e ineorttion roeeins.

Cristine’s eorttion roeeins eteer ter, Jie, n -yer-o U.S. itizen.“I ot eresse,” si Jie. Jie exinett every tie er oter eft te rtent,even to tke ot te trs, Jie “fet o,nervos, n o strt ryin” bese it ve

er sense of t it o be ike to ive itoter oter.

Siiry, Jn, te 2-yer-o U.S. itizeni of n LPR fro Mexio, rtie seein n yin en is fter setine by iirtion oers. His oer sistersi se fere se o never see er fterin.

Ato te Sárez-Orozo sty notete resiiene of iren, it so stresse te

iortne of onsierin o te inerstns te sertion.8 If i is erere for te sertion n te tie rt isfre s teorry n neessry, te sertioni be ore syooiy nebe tn if te i fees tt e or se s been bnoneby te rent. Bese te ontext nirstnes of sertions e to etentionn eorttion re ikey neiter rere



9

for in vne nor fre s teorry, tesesertions ikey i be syooiy it.

In ft, nertinty is rk of etentionn eorttion of LPR rents. Tere is no re-eterine, xe erio of etention, n it isnot er nti n eision s been renere

in e se eter te rent i be reese oreorte.0

IMPACT ON EDUCATION AND SOCIAL DEVELOPMENT

Prents ontribte to teir iren’s eisess by rein to te, ein itoeork, tkin teir iren to n frosoo, n roviin stbe oe environentere iren ern n ro. Hoever,e yer, te etion of tosns of U.S.itizen iren is ete by te etention neorttion of rent o is f ernentresient.

Te rit to etion is ry estbise ininterntion n rits , i enesetion s enossin te bro rne of tivities tt ontribte to te eveoent of iren.2 For exe, te Coittee on teRits of te Ci, te boy tt enfores teinterntion Convention on te Rits of teCi, notes tt etion ines tivities

“beyon for sooin” i “enbe iren,iniviy n oetivey, to eveo teirersonities, tents n biities n to ive fn stisfyin ife itin soiety.”

Te U.S. Sree Cort s reonize teiortne of etion, notin te “stin it of its erivtion on te ife of te i.” Aess to etion is so rotete ner U.S.feer n stte . Te stte o of te NoCi Left Bein At is to irove ess to ity etion for iren. In ition,ertin sttes s s Ciforni ve ereetion to be fnent rit.

Te Urbn Institte sty so oente teeets tt rent etention n eorttionn ve on i’s etion.7 A sinintnber of iren in te sty exerieneisrtions in teir sooin: ny issesoo fooin teir rent’s rrest, soe

stre to intin oo res, n otersonsiere roin ot of soo.8 Fooin te rrest of rent, ei erfornesere n res roe for bot one inve stents.

Te fiies interviee for tis oiy brief

eonstrte o etention n iner teetion of U.S. itizen iren. Wen Snns etine, is irens’ erforne in sooete. Snn’s yonest son, Vit, , entfro bein n A stent to nkin 7t reEnis.

Cristine Sn’s ter Jie, is n onorstent in te Gifte n ente Etionror (GAE). Wie er oter’s se senin, Jie si it took er oner to nis er

oeork bese se s istrte by totsof er oter’s ossibe eorttion. Her oter’seorttion roeeins so ete Jie’ssoi ife. Se fon ersef ettin nry oreoften. Se si se bee set tt er noroeork took oner tn s n s ikerto beoe nry t er feo sstes.

Anoter U.S. itizen, Dnie, is -yer-oo to ne soos en is LPR oter, Mexin ntion, s etine for yer.Dnie—so stent in te GAE ror—

s is res ro. “I in’t onentrte s bese I s in e tt I in’t reonize,”e exine. Dnie si tt e se to beore yf n soiy ene before e to trnsfer soos. He si e s beoeitrn in is ne ernin environent noes not ike tkin to is eers.

U.S. Deportation Law andPolicy Should Be Informed y

European Court of Human Rights Jurisprudence

Te Eroen n rits reie rovies oneoe for ressin otenti fiy sertionin eorttion erins invovin fernent resient rent of U.S. itizen i.Mny Eroen ntions ve iirtion systestt, ike te Unite Sttes, onfront te robe

A P F U D LPR P



10

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of eortin on-ter e resients ooit ries, bt o ve itizen iren nextensive ties to te ontry. Eroen ontriesve inororte jii bnin test ttonsiers te ntion’s interest in bi sfetyin it of te rit to te fiy n te best

interests of te i.Te Eroen Cort of Hn Rits

(Eroen Cort), te jii boy tt enforeste Eroen Convention on Hn Rits(Eroen Convention),70 s reetey ete rit of stte to exe iirnts onviteof ries to intin bi orer.7 Frter,te ort s esize tt te EroenConvention oes not rntee te rit of n iirnt to ive in rtir ontry,eseiy fter oittin rie.72 Hoever,te Eroen Cort s e tt stte’seision to eort n inivi is jstie onyif te interferene it fiy ife is not exessiveore to te bi interest tt is rotete.7 In ses in i n inivi onvite of rie oses itte tret to bi serity n sextensive fiy ties to te ontry, te EroenCort s e tt eorttion y viote te

rit to fiy nity rotete by Artie 8 of teEroen Convention.7

Te Eroen Cort s often fon tt terit to fiy nity oteis te stte’s interestin eortin n iirnt onvite of rie.In te se of Mehemi v. France, te Eroen

Cort onsiere te se of n Aerin ntionsentene to six yers irisonent for ieiorttion of ontroe sbstne.7 TeEroen Cort eie Meei’s fiyonnetions, inin is ife n tree inoriren of Fren ntionity, n fon ttis rit to fiy ife oteie te stte’sinterest in eortin i. Bese is ries non-vioent r oense, te ort fonis eorttion s isroortionte to tebi interest is rse, n ts vioteArtie 8.7

Te Inter-Aerin Coission s fooe siir bnin test to eterine eter teeorttion of rent viotes te rit to fiyner te Aerin Convention on HnRits77 n te Aerin Dertion of teRits n Dties of Mn.78 Te Coission’sreort on Cn’s iirtion syste onees

European Court ModelTe Eroen Cort for Hn Rits riteri for evtin eter rtir eorttionviotes te rit to fiy nity ine:

() te ntre n seriosness of te oense;

(2) te rtion of te inivi’s sty in te ontry;

() te tie i s ese sine te oission of te oense n te int’s ontrin tt erio;

() te ntionities of te vrios ersons onerne;

() te int’s fiy sittion, inin te ent of te rrie n oter ftors ttreve enine fiy ife;

() eter tere re iren, n, if so, teir e;

(7) te best interests n e-bein of te iren, in rtir te seriosness of te itiesi ny iren of te int re ikey to enonter in te ontry to i te intis to be exee; n

(8) te strent of soi, tr n fiy ties it te ost ontry n it te ontry of estintion.

Sores: Meei v. Frne, 7-VI Er. Ct. H.R. ; Botif v. Sitzern, 200-IX Er. Ct. H.R. 20.



11

tt ie sttes ve te rit n ty tointin bi orer tro exsion of iirnts, tey st bne tis rit it teotenti r to te rits of te inivis in sei se.7 Te Coission so ete teEroen Cort’s eterintion tt bnin

test so be ie on se-by-se bsis ntt sttes st ve oein jstition forinterferene it te rit to fiy.80

Siir to U.S. iirtion rior to, te rrent Eroen oe rovies fesibe terntive to ntory etention neorttion. Tis oe o be te torestore te tority of U.S. iirtion jesto ont rti bnin test tt onsierste rits of te LPR rent, te U.S. itizeni, n te stte. Bese of te rtirvnerbiities of iren, U.S. iirtion jes nee exibiity in yin ti-ftorenysis to ensre tt te nees of rties reiven roer onsiertion. S n roo brin rrent iirtion s in ine itte bsi Aerin ves of bi sfety nfiy nity, s e s it interntion nrits stnrs.

Conclusions andRecommendations

Refor of te ntion’s iirtion syste isrenty neee. Tosns of U.S. itizeniren ve been versey ite by teexnsion of te “rvte feony” enition.Reforin te ntion’s iirtion s totke into onsiertion te best interests of U.S.itizen iren i ree nneessry osts toor soi efre syste. S oitions

so i brin te Unite Sttes in ine itinterntion n te rtie of nyEroen ontries. By strentenin erotetions for tese iren, Conress nrer its istori oitent to te rinieof fiy nity.

WE RECOMMEND THE FOLLOWING MEASURES:

»» Congress»should»restore»judicial»discretion»in»all»cases»involving»the»deportation»of»LPRs»who»have»U.S.»citizen»children»in»order»to» give»parents»a»meaningful»opportunity»to» present»evidence»of»the»adverse»impact»that»

their»deportation»will»have»on»their»U.S.»citizen»children.»Restorin isretion i iveiirtion jes n oortnity to keinfore eisions bse on reevnt fts,inin te et, e bein, n etionnees of U.S. itizen iren. Crrentytere is bi enin in Conress tt orovie tis neee refor. Te Ci CitizenProtetion At (CCPA)8 s introe byConressn Jose Serrno (D-NY) on Jnry, 200, in te t Conress s H.R. 82.82 Tis bi o rovie isretionry torityto iirtion jes to eterine eter non-itizen rent of U.S. itizen i sobe orere reove, eorte, or exefro te Unite Sttes. Tis bi o retrnte eision-kin oer to jes ente best interests of U.S. itizen i n in te bne. Tis bi o not interfereit te oer of iirtion jes to orerLPRs reove. If ente, tis bi i restore

isretion in ses in i reief is foreoseby stttory br.8 We reoen ttConress ove to ent te CCPA, eiter oneor s rt of oreensive iirtion reforeistion.

»» Congress»should»revert»to»the»pre-1996»denition»of»aggravated»felony.»Before teeistive nes in , te rvtefeony esintion s reserve for te ostserios oenses. At tt tie ny onvitions

tt fe into tis teory reire sentenesof ve yers or ore.8 oy, sentene of jst one yer ies ny oenses nerte rvte feony esintion.8 Teesintion of onvition s n rvtefeony rests in ineiibiity for isretionryreief, reress of te eities invove. Wits rve onseenes for LPR rents nteir U.S. itizen iren, te rvte

C R



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feony enition so be revise to iit tisteory to ony serios feony onvitions.On Febrry 8, 200, te Aerin BrAssoition vote to re Conress to nerrent iirtion s, in rt by nin te rrent enition of rvte feony. Te

ABA reoens iitin tis teory tofeony onvitions in i sentene of oretn one yer s been iose, n exin ssene sentenes.8

»» Te»U.S.»government»should»collect»data»on»U.S»citizen»children»impacted»by»deportation»of»an»LPR»parent.»Crrenty, e kno very ittebot te nbers of U.S. itizen irenete by eorttion of n LPR rent.S infortion is riti to in fer

nerstnin of te re it of eorttions on te ntion’s yonest itizens. U.S.Dertent of Hoen Serity sooet infortion on te nber, e, enern oter eoris rerin U.S. itizeniren o re serte fro one or botLPR rents s rest of rent eorttion.Te eny so so reor eter teU.S. itizen i reins in te Unite Sttesor onies is or er eorte rent.Te soi its of eorttion of n LPR rent so so be investite. Ineenentreser so be oissione to sty tesyooi, etion, soi, n eonoiits on U.S. itizen iren of LPR rent eorttion.

»» Te»Executive»Oce»for»Immigration»Review»should»establish»guidelines»for»the»exercise»of»discretion»in»cases»involving»the»deportation»of»LPRs»with»U.S.»citizen»children.»U.S.iirtion s reonize tt iren

onstitte vnerbe ro tt reiressei rotetion.87 In 2007, te Cief Iirtion Je isse ieines forjitin ses in i te resonent isn nonie inor o is not U.S.itizen.88 Tese ieines ie te rinieof te best interests of te i to oify teort roeres n environent to ontfor te sei nees of nonie inors

in tese irstnes.8 Te Exetive Oefor Iirtion Revie so isse siirieines to ssist iirtion jes inonsierin te it on itizen iren of eortin n LPR rent.

In soe sittions, eorttion of n

LPR rent i rest in eenent U.S.itizen iren bein eft itot ny fiyretkers in te Unite Sttes. In otersittions, U.S. itizen iren i onyteir rents to forein ontries. Iirtion jes so reeive rorite trinin. Areter nerstnin of te nees of iren,o iren roess infortion n events,n te eet of reovin n LPR rent frote oe of U.S. itizen i i betterrere iirtion jes to eteybne te nees of itizen iren instte interest of te overnent in reovin ertin LPRs fro te Unite Sttes. Teestbisent of ieines n ess totrinin for jes is neessry to ensre eresone otoes tt o not invertentyse isroortionte r to U.S. itizeniren.



13

Te U.S. Dertent of Hoen Serity (DHS) rovie t to te nonovernent orniztion Hn Rits

Wt, i bise n nysis in teir Ari 200 reort Forced Apart (By the Numbers): Non-citizens DeportedMostly or Nonviolent Crimes.0 Hn Rits Wt e vibe sbset of te t overin f ernentresients (LPRs) to te tors of tis reort for or ineenent nysis.

Te estites of te nber of fiy ebers ete by te eorttions of LPRs ere enerte in to-steroess. First, sin te DHS t, e ientie te 8 ontries of eorttion tt onte for 0 erent of te 87,8 LPRs o ere eorte beteen 7 n 2007. Tese ontries re Mexio, te Doinin Reb-i, Ji, E Svor, Coobi, Piiines, Hiti, Gte, rini n obo, Gyn, Honrs, CnUnite Kino, Port, Eor, Per, n Sot Kore. Seon, e e se of te 2008 Aerin ConitiesSrvey, reresenttive srvey of te U.S. otion inistere by te U.S. Censs Bre, to enerte estites ofnonitizen fiy sizes. We nyze nonitizen srvey resonents o et to reireents: tey ere e 0 nteir ontry of birt s one of 8 ontries iste bove. A Bre of Jstie Sttistis bition “Nonitizensin te Feer Criin Jstie Syste, 8-” fon tt te ein e of nonitizens rosete in feer ortss 0, ts e se tt e for or nysis. Te estites re bse on te fooin sstions (fter ontinfor e n ontry-of-birt s esribe ere): () Te otion sttistis enerte fro te 2008 Aerin Co-nities Srvey etey esribes te non-itizen otion for yers 7-2007; (2) te rteristis of teLPR otion re siir to tose of non-itizens in ener (te Aerin Conities Srvey oes not istinisbeteen ierent tyes of non-itizens); n () eorte LPRs ve siir rteristis to te ener otionof non-itizens.

Tis nyti otion of nonitizens reorte n vere of 0. yers ivin in te Unite Sttes. We tevere fiy size, vere nber of on iren, n vere nber of iren ner e ivin in te ose-o s e s t onene intervs for e en sin te ACS oseo eit. Te rone ens ere .7,

. n ., resetivey. Finy, e te estites of te nber of fiy ebers (tot, iren, n irenner e ) ete by tot LPR eorttions beteen 7 n 2007 by tiyin te er n oer iits ofe nrone en’s estite by 87,8 (see tbe beo). For te rose of estitin te nber of fiy e-bers ete by eorttion, s sbtrte fro te en of .7288 to ont for te resonent. Finy, nUrbn Institte sty fon tt 8 erent of iren of iirnts re U.S. itizens. 2 o estite te nber ofiren ner 8 ite by rent eorttion o ere U.S. itizens, e tiie 0,0 by .8.

x

Tb A.:» E C F Mb LPR D

B 1997–2007

Estimate EstimatedRange

ot Nber of Ciren Uner 8 Ite by Deorttionof n LPR Fter or Moter 0,0 8, to 07,8

ot Nber of Ciren Uner Ite by Deorttionof n LPR Fter or Moter ,22 ,80 to 7,0

ot Nber of Ieite Fiy Mebers Ite byDeorttion of LPR in Hoseo 27,08 20,0 to 22,7

Note: Estites re bse on erent onene interv.

x



14

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Notes

1 Aso oony referre to s “reen r oers,”te ter “f ernent resient,” or LPR, refers toinivis o enjoy te e stts to resie ernentyin te Unite Sttes s n iirnt in orne itte iirtion s. Iirtion n Ntionity At[ereinfter INA] § 0()(20), 8 U.S.C. § 0 (2000)( INA ittions in tis reort re to te oi rintversion of te U.S. Coe (2000) ness oterise note).Inivis y obtin tis stts nber of ysinin tro fiy ebers or eoyent. See

generally INA § 20, 8 U.S.C. § .

2 Ja Baala, Mga Plc Iu,Immga h US Amd Fc (My 2008),vibe t tt://.irtioninfortion.or/USFos/isy.f?ID=8# (esse Feb. 2, 200).

3 See Ly Die, Deported! Surprising Details On WhoCan Get the Boot, I’l Eam, vo. , No. 2, Jn. 0,

2008, available at tt://.etentiontnetork.or/noe/8 (esse Feb. 2, 200).

4 See Huma Rgh Wach, Fcd Apa (Bh Num): N-c Dpd Ml Nl O, Ari , 200 [ereinfter“Fcd Apa (B h Num)”], available at tt://.r.or/en/reorts/200/0//fore-rt-nbers-0 (esse Feb. 2, 200).

5 Te U.S. Sree Cort s fon tt eorttionoes not ey onstitte nisent. Fon Ye in v. Unite Sttes, US 8, 728 (8). Hoever, terti eet of eorttion bse on riin onvitions

is tt iirnts re nise one by te riin jstie syste, n ten in by te iirtion syste.Le MDeri, Deportation is Diferent: Noncitizens andInefective Assistance o Counsel, 8 Cal. L. R. 7, 7(200)(“Te teni istintion beteen oter niret onseenes oes notin to eiorte te serin of tose o re sbjet to te obe nisent of rison sentene s reov.”); Fcd Apa (B hNum), supra note , t (sttin tt non-itizensonvite of ries re “sbjet to eorttion fter teyve nise servin teir riin sentenes.”).

6 Anti-erroris n Eetive Det Penty At(AEDPA), Pb. L. No. 0-2, 0 Stt. 2 ().

7 Ie Iirtion Refor n IirntResonsibiity At (IIRIRA), Pb. L. No. 0-208, 0Stt. 00 ().

8 Wen te teory s rst estbise in 88, teter “rvte feony” ie to serios ries s srer, r trkin ries, n ertin iiit trkin oenses. Anti-Dr Abse At of 88, Pb. L. No. 00-0, § 72, 02 Stt. 8 (88). INA § 27()(2)(A)(iii), 8 U.S.C. § 227()(2)(A)(iii), sttes tt ny ieno is onvite of n rvte feony t ny tie fter

ission is eortbe; INA § 20A()(), 8 U.S.C.§ 22b()() sttes tt inivis onvite of nyrvte feony re not eiibe for netion of reov.Aitiony, Conress s tken frter tion to restritte biity of feer jes to revie iirtion orteisions. See REAL ID At of 200, Pb. L. No. 0-, Stt. 2 (200) (brrin feer orts fro reviein

isretionry enis of reief).9 In tis oiy brief, e se te ter “ntoryeorttion” to refer to eorttion itot isretionryerin to onsier irstnes sei to te inivise. Inivis onvite of rvte feonies re sbjetto ntory etention, ineiibe for sy, ernentybrre fro enterin te Unite Sttes, n re sbjet to sentene of to tenty yers if tey re-enter te ontryitot erission fro te Seretry of HoenSerity. INA § 2(), 8 U.S.C. 22(); INA § 208(b)(2)(B)(i), 8 U.S.C. 8 (b)(2)(B)(i); § 22()()(A)(ii), 8U.S.C. § 82()()(A)(ii); § 27(b)(2), 8 U.S.C. § 2(b)(2).

10 Mny stte iseenor ries i renisbe by sentenes of one yer re ine in tervte feony teory in feer iirtion .Tese ries ine non-vioent oenses bese te or“rvte” s no e berin on te irstnes of teoense.

11 Te INA enition of onvition for iirtionroses oes not exe onvition tt s exne oreiinte on te bsis of rebiittive reief. See 8 U.S.C. §0()(8).

12 Before , f ernent resients ere eiibefor reief fro eorttion ner INA § 22() s on s

tey not been onvite of rvte feonies for itey serve sentenes of ve yers or ore. 8 U.S.C.§ 82() (2), reee by Antiterroris n EetiveDet Penty At of , Pb. L. No. 0-208, Div. C.,ite III, § 0(b), 0 Stt. 00-7 ().

13 INA 27()(2)(A)(iii), 8 U.S.C. § 227()(2)(A)(iii),sttes tt ny ien o is onvite of n rvte feonyt ny tie fter ission is eortbe; INA 20A()(),8 U.S.C. § 22b()(), sttes tt inivis onviteof ny rvte feony re not eiibe for netion of reov. Aitiony, Conress s tken frter tion torestrit te biity of feer jes to revie iirtion

ort eisions. Te 200 REAL ID At, Pb. L. No. 0-, Stt. 2 (200), brs feer orts fro reviein isretionry enis of reief, inin isretionryreief sti vibe to f ernent resients, s snetion of reov, vontry ertre, n jstentof stts. INA § 22()(2)(B), 8 U.S.C. § 22()(2)(B)(reovin jrisition to revie “ny jent rerin terntin of reief ner setion 22(), 22(i), 20A, 20B,or 2,” or “ny oter eision or tion... .”).

14 U.S. Immga ad Cum Ecm(ICE), Fcal Ya Aual Rp, Pcg



15

Naal Scu ad Uphldg Pulc Sa3, available at tt://.ie.ov/i/reorts/nn_reort/2008/r_2008_e.t (esse Jn. , 200).

15 Te ost oon riin oenses re rivin nerte inene of ior, sie sst, n r ossession.See Fcd Apa (B h Num), supra note , t .

16 Aerin Iirtion Lyers Assoition, AILA

InfoNet, Do. No. 00022, vibe t tt://.i.or/ontent/eft.sx?oi=82 (esse Feb. 2,200).

17 Te nes of tose interviee for tis oiy brief ve been ne to rotet teir rivy.

18 Tis s bse on te vere ross yers 8-200;t for yers 7 n 2007 re not for tose f yers.

19 U.S. Dp. Hmlad Scu, Oc Pulc Aa, Fac Sh: ICE Fcal Ya 1Eacd Budg 2, Nov. , 200, available at tt://.ie.ov/i/nes/ftseets/inex.t (esse Feb. 2,200).

20 Id. t -2.

21 Fcd Apa (B h Num), supra note ,t 2.

22 Bse on ittive sty of 0 iren o itnesse te rrest of teir oters, Jose-Kfnerosite tt te i eves of nxiety n eression fonon rtiints ere ssoite it te exerieneof tern inrertion n it tr rete to terrest event itsef. C.J. Jose-Kfner, Post-Traumatic StressReactions in Children o Imprisoned Mothers, in Chld Icacad Pa (K. Gbe & D. Jonston es.,). In er se of oters inrerte t oen’s

risons in Kentky n Wsinton Stte n teiriren, Bn fon tt 70 erent of te irenexibite sytos of soi n syooi isorers,s s ression, ostiity, n itr. Phll JBauach, Mh P (rnstion Books8).

23 A M. Sa, Wh Mh G Jal(Lexinton Books 80).

24 Aa Chaud al., Ua I., FacgOu Fuu: Chld h Amah Immga Ecm 27 (200) [ereinfterUa I.]. Te sty ine 0 iren in 8

fiies ivin in six U.S. ities. For ore infortion on teeet of eorttion on fiies in te Unite Sttes, seete ork of Fiies for Freeo, Ne York-bse ti-etni efense netork rn by n for fiies onfrontin eorttion, tt://.fiiesforfreeo.or.

25 Ua I., supra note 2, t ix. Bese of tesenni ities, one in for fiies ove in itfriens n fiy to ree teir osin osts, n of teeit fiies tt one teir oes rior to te etentionof teir rent, for ost teir oes s rest.

26 Ua I., supra note 2, t xiii (sttin tt one infor of te oseos i not ve ny e erners fterte rrest, n bot to-tirs of te fiies intervieestte tt tey trobe yin teir onty bis s rest of te rent etention).

27 Ua I., supra note 2, t .

28 Ua I., supra note 2, t (sttin tt

ie ony one in ten of te fiies interviee reortereeivin eorry Assistne for Neey Fiies benetsbefore te rrest, bot one in seven reeive benetsfooin te rrest).

29 Ua I., supra note 2.

30 See, e.g., Interntion Covennt on Eonoi, Soin Ctr Rits, De. , , U.N..S. , 0,rt. 2, S. Exe. Do. D, -2 (78); S. rety Do. No.-, I.L.M. 0 (7) [ereinfter ICESCR]: (everyi s “te rit to s esres of rotetion s rereire by is stts s inor”). See also, UN HnRits Coittee, Gener Coent 7, ¶ 2 (sttin tt

te ICCPR reires tt sttes ot “sei esres torotet iren” to ensre tt tey enjoy of te ritsrovie in te Covennt). See also, Convention on teRits of te Ci, Nov. 20, 8, 77 U.N..S. , 28I.L.M. (8) [ereinfter CRC].

31 See, e.g., ICESCR, supra note 0, rt. 0() (sttin “[]e iest ossibe rotetion n ssistne so beore to te fiy.”).

32 Interntion Covennt on Civi n Poiti Rits,De. , , U.N..S. 7, 77, 7, rts. 7, 2[ereinfter ICCPR].

33 Hn Rits Coittee, Gener Coent No.

: Artie 2 (Te Fiy) Protetion of te Fiy,te Rit to Mrrie n Eity of te Soses, ¶ (27/07/0).

34 See, e.g., Wint v Astri (No. 0/2000), Ast 200, U.N. Do. No. CCPR/C/72/D/0/2000(referrin to se of stteess rrie oe froInonesi, ere te Hn Rits Coittee fontt eortin te rents o viote rties 7, 2,n 2 of te ICCPR). Te Coittee note tt te fttt non-itizen rents y ve i o is itizenoes not neessriy ssify te eorttion s n rbitrryinterferene it te rit to fiy. On te one n, tisstteent iits tt ner te ICCPR, non-itizenso not ve n bsote rit to rein in te ost ontry.On te oter n, it iintes te nee for sttes toevte ossibe nf interferenes it te rit tofiy. In tis instne, bese te i been bornn rise in Astri, “ttenin Astrin soos s norinry i o n eveoin te soi retionsisinerent in tt,” te Coittee re tt Astri toresent ition ftors to jstify te eorttion of isrents “in orer to voi rteriztion of rbitrriness.”



16

’ b

35 CRC, supra note 0, t , rt. .

36 U.S. Dp. Halh ad Huma Sc,Adma Chld ad Faml,Dmg h B I h Chld:Summa Sa Law, Ari 2008, available at tt://.iefre.ov/systeie/s_oiies/stttes/best_interest.f (esse Feb. 2, 200).

37 Fiy n Mei Leve At, Pb. L. 0-, 07Stt. , 2 U.S.C. § 20 ().

38 See, e.g., C. Lb. Coe § 20.8 (roibitin eoyerso eoy 2 or ore eoyees fro isriintin inst eoyees for tkin o to 0 ors e yerto rtiite in soo or i re tivities for is orer i).

39 Tis key rose is entione in te eistive istoryof te At n in sbseent itition. See also Sois-Esinoz v. Gonzes, 0 F. 00, 0 (t Cir. 200)(otin H.R. Re. No. 8-, t. 2 (7), rerinte in7 U.S.C.C.A.N. 20, 2020); see also Coon-Nvrro,

Fernno, What Happened to Family Unity?, Fla. J. I’lL. , 2 (2007).

40 Coon-Nvrro,supra note , t 7 (otin U.S.Seet Coission on Iirtion n Refee Poiy,U.S. Iirtion Poiy n te Ntion Interest 2- (8)). Unti te nes, fiy renition been t te fontion of U.S. iirtion oiy. In, Conress sse te Iirtion Refor At of , i ne “te riry fos of te riteri forission fro ntionity to fiy renition.” Id. t (otin Ntion Reser Coni, Sttistis on U.S.Iirtion: An Assessent of Dt Nees for FtreReser ()).

41 Fio v. Be, 0 U.S. 787, 7 (77) (otin H.R. Re. No. 8-, t 7 (7)). Seiy, in Lau v.Kiley, te Seon Cirit e te iortne of fiyrenition in vis referene s en it stte tt te“foreost oiy neryin te rntin of referene vissner or iirtion s [is] tt of te renition of fiies.” L v. Kiey, F.2 , 7 (2 Cir. 77).

42 Kiski v. Dist. Dir. of INS, 20 F.2 2, 27 (tCir. 80). In ter se, Sois-Esinoz v. Gonzes,0 F. 00, 0 (t Cir. 200), te Nint Ciritrere tt te riry rose of te INA is to“kee fiies toeter” n tt bi oiy “sorts

reonition n intenne of fiy nit.”43 Ua I., supra note 2, t 2, 70.

44 Te rit to et s been fory reonize bysix interntion n rits treties. See, InterntionConvention on te Eiintion of A Fors of RiDisriintion, De. 2, , S. Exe. Do. C, -2(78); S. rety Do. -8; 0 U.N..S. , 22,220, rt. (e)(iv); Convention on te Eiintion of Fors of Disriintion Ainst Woen, De. 8, 7,

2 U.N..S. , 8-, rts. ()(f ), 2 n (2)(b)(80) [ereinfter CEDAW]; Interntion Conventionon te Protetion of te Rits of A Mirnt Workersn Mebers of Teir Fiies, Ne York, De. 8, 0,entered into orce Jy , 200, 2220 U.N..S. , 0, 08,0, rts. 28, (e), n () () [ereinfter MirntWorkers Convention]; Interntion Convention on te

Protetion n Prootion of te Rits n Dinity of Persons it Disbiities, G.A. res. /0, Annex I, U.N.GAOR, st Sess., S. No. , t , U.N. Do. A//(De. , 200), I.L.M. , rt. 2; CRC, supra note 0,t 2, rt. 2; ICESCR, supra note 0, t 0, rt. 2.

45 ICESCR, supra note 0, t 0, rt. 2().

46 Constittion of te Wor Het Orniztion,rebe, Jy 22, .

47 See, e.g., Te No Ci Left Bein At of 200,20 U.S.C. 0 (2002) [ereinfter No Ci LeftBein At]; Stte Ci Het Insrne ProrRetoriztion At of 200, 2 U.S.C. § 20, -7

200.48 Rad Capp al, Ua I., h NwDmgaph Amca’ Schl: Immga h N Chld L Bhd Ac (200), available attt://.rbn.or/bitions/20.t (esseFeb. 2, 200).

49 D. Jh, Jald Mh (Pi Oks Centerfor Ciren of Inrerte Prents ).

50 See R. Whla, B Hm ad BadChld: A Sud h Rlahp BwChld Au ad Faml p (Lonon, FiyEtion rst ) (nin tt te resene of oter

ts oter tn boo retives in i’s oe inreseste nes of vitiiztion).

51 Mreo n Cro Sárez-Orozo, Making Up orLost Time: e Experience o Separation and Reunicationamong Immigrant Families, in h Nw Immga: AIdcpla Rad 7, 8 (Mreo n CroSárez-Orozo e., 200) [ereinfter Sárez-Orozo].

52 Sárez-Orozo, supra note , t 7.

53 Sárez-Orozo, supra note , t .


55 Ua I., supra note 2, t ix.

56 Ua I., supra note 2, t ix (sttin tt jority of iren exeriene for or ore of tesebevior nes) n t (sttin tt iren oexeriene on-ter sertion fro teir rents ereost rone to itr n ression).




60 Aitiony, in oiy reort tt fose on fiysertion e to irtion of rents to te Unite Sttes,



17

University of Mryn rofessors fon tt rents nsyooists in teir sty beieve tt fiy sertions netive syooi eets for bot rents niren rin teir sertion n fter renition..H. Gdlg Saa Pgg, Faml Spaa adh Educaal Succ Immga Chld2 (200) available at tt://obi.rters.e/f/

Fiy_Sertion-Poiy_Brief.f (esse Feb. 2,200). Te oters in teir fos ro ere intenseyre of te eotion bren of sertion teir irenexeriene. Id. Mny oters ere very onerne ttteir iren o beoe invove in ns s “refefro eotion robes.” Id.

61 See, e.., ICESCR, supra note 0, t 8, rt. ()(ntin tt te “Sttes Prties to te resent Covenntreonize te rit of everyone to etion”). See also CRC,supra note 0, t , rt. 28.

62 Te rit to etion extens beyon bsi skisinstrtion. See, e.g., CRC, supra note 0, t , rt. 2()()(sttin tt etion so be irete to “eveoentof te i’s ersonity, tents n ent n ysibiities to teir fest otenti”). Te Coitteeon te Rits of te Ci s so reonize tteveoin soi retionsis is key rt of etion.Te Coittee s interrete te rit to etion toenoss te rose of “ensrin tt essenti ife skisre ernt by every i n tt no i eves sooitot bein eie to fe te enes tt e orse n exet to be onfronte it in ife.” Coitteeon te Rits of te Ci, Gener Coent : Ais of Etion, Artie 2 (), ¶ (/7/0) [ereinfter CRCGener Coent ]. Te oittee ent on to ene

“bsi skis” s “not ony itery n nery bt so ifeskis s s te biity to ke e-bne eisions; toresove onits in non-vioent nner; n to eveo ety ifestye, oo soi retionsis n resonsibiity,riti tinkin, retive tents, n oter biities iive iren te toos neee to rse teir otions inife.” Id.

63 CRC Gener Coent , supra note 2, t ¶ 2.

64 Pyer v. Doe, 7 U.S. 202, 22 (82).

65 See, No Ci Left Bein At, supra note 7.

66 Serrno v. Priest, 87 P.2 2 (7).


68 Ua I., supra note 2, t -0.

69 Ua I., supra note 2, t (sttin tt on te nber of iren o soe sins of beviornes t soo, ost trobe fosin).

70 Convention for te Protetion of Hn Rits nFnent Freeos, Set. , , 2 U.N..S. 222[ereinfter Eroen Convention].

71 See Uner v. Neterns, 200-XII, Er. Ct. H.R. ___,available at tt://isk.er.oe.int/tk7/vie.s?ite=&ort=bk&tion=t&iit=Uner%20

|%20v.%20|%20Neterns&sessioni=777&skin=o-en.

72 Eroen Convention, supra note 70, rt. 8. Artie 8of te Eroen Convention on Hn Rits rovies:“Everyone s te rit to reset for is rivte n fiyife, is oe n is orresonene. Tere s be nointerferene by bi tority it te exerise of tis

rit exet s s is in orne it te n isneessry in eorti soiety in te interests of ntionserity, bi sfety or te eonoi e-bein of teontry, for te revention of isorer or rie, for terotetion of et or ors, or for te rotetion of terits n freeos of oters.”

73 Berreb v. te Neterns, 8 Er. Ct. H.R. (ser.A) (88); see so Bejoi v. Frne, 2 Er. Ct. H.R.(2), Meei v. Frne, 7-VI Er. Ct. H.R. ; nE Bojïi v. Frne, 7-VI Er. Ct. H.R. 80.

74 Botif v. Sitzern, 200-IX Er. Ct. H.R. 20.

75 Meei v. Frne, 7-VI Er. Ct. H.R. .

76 Desite te ft tt te ont of rs in estions sbstnti, 2 kiors of sis, te EroenCort of Hn Rits ve onsierbe eit to teft tt Meei no rior onvitions n tt iseorttion oetey serte i fro is ifen iren bese it s iossibe for te to resettetoeter in Aeri or ny oter ontry. Id. Te ort sonote tt Meei “s oetey interte into Frensoiety n no ink tsoever it Aeri oter tnis ntionity.” Id. See also Aroi v. Denrk, (No.8/00) Er. Ct. H.R. ( Jy , 2002) available at tt://isk.er.oe.int/tk7/vie.s?ite=&ort=bk &tion=t&iit=Aroi%20|%20v.%20|%20Denrk&sessioni=777&skin=o-en (oin tt te eorttion of n Irnin ntion fro Denrk for serios r oense viote Artie 8 ner te Boulti test bese Aroi s rrie to Dnis ntion, to Dnis itizen iren, n it s iossibe forte to reote to Irn). It is iortnt to note tt teEroen Cort often oes not n n Artie 8 viotion. InGrant v. United Kingdom, te ort e tt bese Grnt, ntion of Ji ivin in Enn, oitteover fty oenses, ontine to re-oen, n neverobite it is itizen iren, is eorttion to

Ji s not viotion of Artie 8. Grnt v. Unite

Kino, (No. 00/07), Er. Cort. H.R. ( Jn. 8, 200)available at tt://isk.er.oe.int/tk7/vie.s?ite=2&ort=bk&tion=t&iit=Grnt%20|%20v.%20|%20Unite%20|%20Kino&sessioni=777&skin=o-en. Ato te Eroen Cortknoee tt te jority of is oenses ere non-vioent, it o not inore te “seer nber of oenes” eoitte n te ft tt it te exetion of one for-yer erio, tere s no roone erio rin ie s ot of rison n i not re-oen. Id. Te ortreonize tt is eorttion o et is yonest



18

’ b

ter, bt intine tt it o not et er in tese nner it o ve if tey been ivin toeters fiy. Id. Ts, te ort e tt fir bne sstrk n tt Grnt’s eorttion s roortionte tote eitite i rse. Id.

77 Aerin Convention on Hn Rits, Nov. 2,, O.A.S. .S. No. ; U.N..S. , 0, rt.

7() (sttin “Te fiy is te ntr n fnentro nit of soiety n is entite to rotetion by soietyn te stte” ), Art. sttin: “Every inor i ste rit to te esres of rotetion reire by isonition s inor on te rt of is fiy, soiety, nte stte”) ().

78 Aerin Dertion of te Rits n Dties of Mn, Res. XXX, Fin At of te Nint InterntionConferene of Aerin Sttes (Pn Aerin Union),Boot, Coobi, Mr. 0-My 2, 8, t 8; reprinted inHnbook of Existin Res Pertinin to Hn Rits,OEA/Ser.L/V/II.2 Do. 2 Rev. , t (7); Annsof te O.A.S. 0 (); Bsi Doents Pertinin to Hn Rits in te Inter-Aerin Syste, OAS/Ser.L/V/I. Rev. (200); n A. J. Int’ L. S. (). Art. V (sttin “Every erson s te rit to terotetion of te inst bsive ttks on is onor,is rettion, n is rivte n fiy ife.”) Art. VI(sttin “Every erson s te rit to estbis fiy, tebsi eeent of soiety, n to reeive rotetion terefor.”).

79 Reort on te Sittion of Hn Rits of AsySeekers Witin te Cnin Refee DeterintionSyste, Inter-A. C.H.R., OEA/Ser.L/V/II.0, o.0 (2000) [ereinfter Reort on Cnin RefeeSyste]. Te Coission fon tt in instnes in i

iirtion roeeins y otentiy serte fiies,te restin interferene it fiy ife y ony be

jstie ere neessry to eet ressin nee to rotetbi orer, n ere te ens re roortion tott en.

80 Reort on Cnin Refee Syste, supra note 7.

81 Te nes roose by te Ci Citizen ProtetionAt so er in te Coreensive Iirtion Reforfor Aeri’s Serity n Proserity At, H.R. 2,introe by Conressn Lis V. Gtierrez (D-IL)in Deeber 200. Uner Setion , te bi restoresisretionry tority to eine to orer “reove,

eorte, or exe fro te Unite Sttes” te rent of i o is U.S. itizen. H.R. 2, t Con. § (st Sess. 200).

82 H.R. 82, t Con. (st Sess. 200).

83 In ition to te rvte feony br toisretionry reief, te “sto-tie” or “ok sto” re fonin iirtion brs isretionry reief to iniviso ve been onvite of ertin ries bse on osoon fter teir ission te onvitions took e. 8U.S.C. § 22b()(2), 8 U.S.C. § 22b()(). Even inor,non-vioent, n non-rvte feony oenses n br

eiibiity for isretionry iver. Id. Te AerinBr Assoition ote Resotion A on Febrry8, 200, rin Conress to en te Iirtion nNtionity At to restore n iirtion je’s torityto onsier isretionry ition “to eservin fernent resients brre fro netion by te oense‘ok-sto’ rovision.” ABA Co’n on Iirtion,

Reoention A Aote by te Hose of Deetes (Feb. 8, 200), vibe t tt://.bnet.or/eersi/200/iyer/os/iy_jorn.f.[ereinfter Resotion A].

84 See Iirtion Refor n IirntResonsibiity At, Pb. L. No. 0-208, § 2(), 0Stt. 00- (), rein te sentene reirefor enin ess serios ries s rvte feonies. Seealso Bnise For Minor Cries: Te Arvte FeonyProvision Of Te Iirtion An Ntionity At As AHn Rits Viotion, 2 B.C. hd Wld L.J. 2(200).

85 See, e.g., 8 U.S.C. § 0()()(F), (G), (R), (S).

86 Resotion A, supra note 8.

87 See, e.g., INA § 20A(b)()(D), 8 U.S.C. § 22b(b)()(D), i reires tt noente iirtionsseekin netion of reov estbis “tt reov orest in exetion n extreey ns rsi to teien’s sose rent, or i,” or INA § 20A(b)(2)(A),8 U.S.C. § 22b(b)(2), i rovies sei res forbttere soses n iren.

88 Dp’ Juc, Ecu Oc Imm-ga Rw, Oc h Ch Immga

Judg Opag Plc ad Pcdu Mm-adum -1: Gudl Immga CuCa Ilg Uaccmpad Al Chld(2007) [ereinfter Gieines].

89 Te Cief Iirtion Je seste tt ie“te onet of ‘best interests of te i’” oes not roviereief tt is not sntione by , it is neverteess ftor tt retes to te iirtion je’s isretionin tkin stes to ensre tt ‘i-rorite’ erin environent is estbise ….” Gieines, supra note 88,t .

90 Fcd Apa (B h Num), supra note .

91 Steven Res, Mtte Sobek, rent Aexner,Cterine A. Fit, Ron Goeken, Ptrii Key H,Miri Kin, n C Ronnner. Interte Pbi UseMirot Series: Version .0 [Mine-rebe tbse].Minneois, MN: Minnesot Potion Center [roern istribtor], 2008.

92 Ua I., Chld Immga: ASacal Saph (200), available at tt://.rbn.or/bitions/02.t (esse Feb. 2,200).



19

Authors & Acknowledgments

authors Jontn BRos Jones

Cterine BrryJontn B n Ros Jones re J.D. Cnites t te University of Ciforni,Berkeey, Soo of L (20) n re te riry tors of tis reort. Tey on-te tis ork s interns in te soo’s Interntion Hn Rits L Cini.Cterine Brry is P.D. Cnite in Soiooy & Deory t te University of Ciforni, Berkeey. Se nyze eori t to estite te nbers of fiyebers ete by eorttions of e ernent resients.

contributors Pris Iji-MsooiLis CávezM. Qin Hoes

Pris Iji-Msooi is J.D. Cnite t te University of Ciforni, Dvis,

Soo of L (200) n rovie e nysis of iirtion etention n reovefense, n onte intervies of etinees s n intern in te Iirtion LCini. Lis Cávez is Reser Anyst t te Cief Jstie Er Wrren Institte onRe, Etniity n Diversity t te University of Ciforni, Berkeey, Soo of L,n onte eorttion n eori t nysis. Qin Hoes is J.D. Cn-ite t University of Ciforni, Dvis, Soo of L (20) n ontribte ereser n nysis of iirtion s n onte intervies of etinees s nintern in te Iirtion L Cini.

editors Lre E. FeterDiretor, Interntion Hn Rits L Cini & Cini Professor of LUniversity of Ciforni, Berkeey, Soo of L

R JorjniCini Professor of L, Iirtion L CiniUniversity of Ciforni, Dvis, Soo of L

Arti KoiDiretor of Iirtion PoiyCief Jstie Er Wrren Institte on Re, Etniity n DiversityUniversity of Ciforni, Berkeey, Soo of L

design Jons Lern Stio, Sn Frniso, CA

cover photo oy Fjorbøe, “A one....” (2008)

acknowledgements We o so ike to tnk Dee Vr t te Wrren Institte for er revie noents on rfts of te reort; Jy Lonon of Pbi Conse for er invbeotre ssistne on tis rojet; n Aison Prker t Hn Rits Wt forroviin t fro teir Freeo of Infortion At reest for nysis in tisreort. Te Berkeey L ibrry st rovie invbe reser sort. Te torsso tnk Den Cristoer Eey, Jr., for is oitent to ini etion nsort of te rojet.

Te tors re rtef to te inivi onors to te Interntion Hn RitsL Cini, itot o tis ork o not be ossibe.



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