State of Texas et al v. United States of America et al

Filing 64

REPLY in Support of 5 Opposed MOTION for Preliminary Injunction, filed by Phil Bryant, Paul R. LePage, Patrick L. McCrory, C.L. "Butch" Otter, Bill Schuette, State of Louisiana, State of Alabama, State of Arizona, State of Arkansas, State of Florida, State of Georgia, State of Idaho, State of Indiana, State of Kansas, State of Montana, State of Nebraska, State of North Dakota, State of Ohio, State of Oklahoma, State of South Carolina, State of South Dakota, State of Texas, State of Utah, State of West Virginia, State of Wisconsin. (Attachments: # 1 Exhibit Ex 1, # 2 Exhibit Ex. 2, # 3 Exhibit Ex. 3, # 4 Exhibit Ex. 4, # 5 Exhibit Ex. 5, # 6 Exhibit Ex. 6, # 7 Exhibit Ex. 7, # 8 Exhibit Ex. 8, # 9 Exhibit Ex. 9.a, # 10 Exhibit Ex. 9.b, # 11 Exhibit Ex. 10.a, # 12 Exhibit Ex. 10.b, # 13 Exhibit Ex. 10.c, # 14 Exhibit Ex. 10.d, # 15 Exhibit Ex. 10.e, # 16 Exhibit Ex. 10.f, # 17 Exhibit Ex. 10.g, # 18 Exhibit Ex. 10.h, # 19 Exhibit Ex. 10.i, # 20 Exhibit Ex. 10.j, # 21 Exhibit Ex. 10.k, # 22 Exhibit Ex. 10.l, # 23 Exhibit Ex. 10.m, # 24 Exhibit Ex. 10.n, # 25 Exhibit Ex. 10.0, # 26 Exhibit Ex. 10.p, # 27 Exhibit Ex. 10.q, # 28 Exhibit Ex. 10.r, # 29 Exhibit Ex. 10.s, # 30 Exhibit Ex. 11, # 31 Exhibit Ex. 12, # 32 Exhibit Ex. 13, # 33 Exhibit Ex. 14, # 34 Exhibit Ex. 15, # 35 Exhibit Ex. 16, # 36 Exhibit Ex. 17, # 37 Exhibit Ex. 18, # 38 Exhibit Ex. 19, # 39 Exhibit Ex. 20, # 40 Exhibit Ex. 21, # 41 Exhibit Ex. 22, # 42 Exhibit Ex. 23, # 43 Exhibit Ex. 24, # 44 Exhibit Ex. 25, # 45 Exhibit Ex. 26, # 46 Exhibit Ex. 27, # 47 Exhibit Ex. 28, # 48 Exhibit Ex. 29, # 49 Exhibit Ex. 30, # 50 Exhibit Ex. 31, # 51 Exhibit Ex. 32, # 52 Exhibit Ex. 33, # 53 Exhibit Ex. 34, # 54 Exhibit Ex. 35)(Oldham, Andrew)

Procedures for Unclassifiable FBI Prints
An FBI response might indicate that an individuars
fing·e rprints were unacceptable for fingerprint analysis.
~-·· ·~v~--:~-~ -----.Afte.r...a,n j.1:1.i.tial.".u.naccepta.b.le'.'·J
-response, .the ind ivid ua I. ··J·· must be reprinted.

-·-'-·- ....·.·-·

If the first fingerprint results are Unclassifiable, check
SNAP to see if the requestor appeared for a second
ASC appointment.
• · If yes, check BBSS for the results.
s
• · If not, · chedule a second ASC appointment,
using priority code "1" in SNAP to bypass the 60
·day waiting period for rescheduling .
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App. 0524

Procedures for Unclassifiabl~ FBI Prints (Continued)
RFE guidance for unclassifiable prints
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• If the second set of fingerprints are returned as
"Unclassifiable", the officer should issue DACA RFE 150
call up from Appendix D for police certificates.
• The DACA.requestor must provide (1). police clearances
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_for the pre. ious five years from all places of reside nce,
and (2) a stat~ment discl_ sing any and all criminal
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history (arrests, charges, etc.), including overseas.

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App. 0525

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RAP Sheet: Accuracy and Completeness Concerns
Since participation by state and local agencies is not mandatory, the
FBI Fingerprint check does not contain records from every jurisdiction.
- , ~, ,.. ---.~-.-~ . ·--·...-.·.·Therefere ··~~Non-l·DEN,T· · does not·mean that the ·individual has· no··
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administrative or criminal history.
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If a criminal hit comes up in another system or the individual has
provided testimony, a sworn statement, or other evidence of, crim inal
activity that does not appear in the fingerprint results or RAP sheets ,.
U·SCIS personnel should follow specific form SOPs .(where
applicable) for determining. what additional. steps are needed to
address the derogatory. information . .

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App. 0526

Criminal Issues Specific to DACA
An individual may not -be considered for DACA if he or she has been
convicted of:
A . felony offense; -'-- · ... .
- -· . - ..
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• A ·significant misdemeanor offense; or
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• Three or more other misdemeanors,

OR, poses a threat to national,. security or public safety;
UNLESS9 USCIS determines there. are exceptional circumstances.
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determination·· th·at·exceptiona1-- ·i rcumstances exist for .
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·. deferral of removal under DACA will be made only at the HQ
·1evel and in extremely rare cases.

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App. 0527

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App. 0528

Felony
• A felony is a federal, state or local criminal offense for which
.the maxJmum term of. imprisonment authorized is for a period
of more than one year.
• A requestor convicted of one felony will be found not to meet
the guidelines for DACA consideration, unless USCIS
determines there are exceptional circumstances.

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App. 0530

Significant Misdemeanor
A significant misdemeanor is a misdemeanor that involves:
• Domestic violence
• ·. Sexual abuse or exploitation
• Burglary
• Unlawful po_session or use of a firearm
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• Drug distribution or trafficking, or
• Driving under the influence of alcohol or drugs;
OR

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for which the individual was sentenced to time in custody of
more than 90 days.

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App. 0531

Significant Misdemeanor (Continued)
• Sentence must involve time to be served in custody, and does
not include suspended sentence.
• Tim~ in custody does not include period in ICE custody that
may follow completion of criminal sentence.
• "A requester convicted of one significant misdemeanor will be
. ··- fo.und .notto meet the guideli.n. s .f or DACA consideration ,
e
· unless USCIS determines there are exceptional
circumstances.

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App. 0532

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App. 0533

Misdemeanor
.• Any federal state or local criminal offense, if:
~·· maximum - term

of iniprisonmerit authorized is for a period of
more than 5 days but not more than one year,

• regardless of Whether the jurisdiction in which the offense is
committed classifies the offense as a misdemeanor.

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App. 0534

Multiple Misdemeanors
• The requestor does not meet the guidelines for DACA
.. consideration if convicted of three or rnore non-significant
misdemeanors, unless USCIS determines there are
-exceptional circumstances.
• Misdemeanors occurring on. the same day or arising out of the
same act, omission, or scheme of.misconduct, will only be
a
counted - s one misdemeanor for these purposes.

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App. 0535

Misdemeanors (Continued)
• A minor traffic offense, such as driving without a license, will
_·-···· -·. ... --· .. ...n.o.t .be._c.onsidere.d._ misdem~anor for purposes of this ... ···- . ... .. .
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process.
•· State law immigration-related offenses characterized as
felonies or m·i sdemeanors by ·state immigration laws will not be
treated as disqualifying felonies ·or m·i sdemeanors.
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Distinguish from ·federal

immigratio~

offenses.

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App. 0536

Foreign Convictions
• Will generally not be treated as a disqualifying felony or
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• May be relevant to public safety concerns and whether, under
the particular circumstances, ·the exercise ·of prosecutorial
discretion is warranted.
• Cases involving foreign convictions should be elevated for
super\iisory review.

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App. 0538

What Constitutes a Conviction?
Defined in _
INA § 101 (a)(48)(A) as:
• A formal judgment of guilt entered by a court, or
• If adjudication of guilt has been withheld, where:
• · a judge or jury has foun_ the ·alien guilty or the alien has entered a plea of
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.guilty or nolo contendere or has admitted _.sufficient facts to warrant a fin.ding
of guilt; and
• the judge has ordered some form of punishment, penalty, or restraint on the
alien's liberty to be imposed.

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App. 0539

Formal Judgment of Guilt by Cou rt
• The entry of guilt can be found on the record of conviction itself
. --if the alien pied guilty, theh there\tVill be an indication of the
plea and the court's finding of guilt
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• If th· alien went to trial, then. the conviction record should
e
. indicate that the defendant-was found guilty by judge or jury
• Court records vary f~om jurisdiction to jurisdiction, but you want
_ to 109~ for plea, finding, entry.. or. s_
i milar words relating to guilt
or a no contest (no/o contendere) plea
• Indication that.entry of judgment of gu.ilt was not made include
words such as "withheld" or "deferred"
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App. 0540

No Entry of Judgment of ·Guilt
• Sometimes called Continued without a Finding (CWOF);

...., . . . --~~.._,.~.~. adj.udicatio.n. .w.ithh.etd.; deferred adjudication, etc.
_
Different jurisdictions use different terminology.
• If adjudication has been yvithheld, then to constitute a
conviction, there must be 2 prongs satisfied:_
( 1) Verdict, Plea or finding of guilt and
(2) Punishment or restraint on liberty

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App. 0541

Conviction - Pleas
If there is no formal judgment of guilt, then for the cou rt's action
to constitute a conviction:
. . ·-····,_ ···~·..-·-·'·. ··-··-~The'"'defenda·nt'"must'plead . ·guilty·or·th-e··court ·must. make a ·finding··of·guilt.-·
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• A "nolo contendere" or "no contest" plea is still a guilty plea for immigration
purposes.
• Therefore, a "deferred prosecution" or pre-trial diversion program that does
not- require the defendant to plead guilty or require the court to make any
findin'g of guilt cannot constitute a conviction.

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App. 0542

Convic~ion

- Punishment, Penalty, Restraint on Liberty

Imposition of costs in a criminal case constitutes a form of
. ._
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is.hm_ent_ fo.rJ. .8.,... . 101_ ).(48 )(.A) _ .efioJtio.n of cg_n_'lictiQn~ --. _ _,_ _.
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• Punishment might be fines.
• ·Probation, community supervision etc., is a restraint on liberty.
• Where the only consequence of a criminal judgment is a
suspended non-incarceratory sanction, however, it may not
constitute a: conviction for .immigration purposes. Retuta v.
Holder; 591 F.3d 1181 (9th Cir. 2010) (a suspended fine was
not a .punishment or penalty sufficient to be a conviction).

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App. 0543

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Exam· les of Possible Valid Gonvictions under the INA
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• Pleas. An Alford plea, no contest plea and nolo contendere
·-~--·· r- · _
plea ..al.Lsatisfy_
the "fin.ding of gui.lt'~ re.q.uire. nent tor~. a. - .- ·-· ·.. . -.-.
r
·
.conviction. ·See Abimbola v. Ashcroff, 378 F.3d 173 (2d Cir.
2004)(Alford plea is a guilty plea and therefore may form ~he
basis of a conviction).

.

._-_

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• Deferred Ad·judication. Both the Board and the federal courts
have held that a deferred adjudication is a conviction for
immigration purposes where it involves an admission of guilt
and limitations on the defend· nt's liberty. See Matter of Punu,
a
22 l&N Dec. 224 (BIA 1998) (Texas qeferred adjudication is ~
conviction) .
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App. 0544

Examples (Continued)
. • One court has held that a Massachusetts conviction, in which
- ·-·-·-·_·-·· -· .. the _ e fen_ ant adm.i tted to .facts . s. Jficlent.for .a findi ng _
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with a continuation without a finding (CWOF), and with the
.·imposition of a restitution order, is a conviction under the INA.
De Vega v. Gonzales·, 503 F.-3d 45 (1st Cir. 2007).
11

A "guilty filed" disposition under Massachusett~ law satisfi ~s the
finding. of guilt requirement and may constitute a conviction under the
.IN· . Griffiths v. INS, 243 F.3d 45 (1st Cir. 2001 ).
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App. 0545

Examples (Continued)
• Court Martial. A judgment of guilt that has been entered by a
'. _ ··-·-·--····.. ...· g.e.neral . cou.rt-;martia.I. .o f .the .. United S~tates .. Armed. Fore.es..... __ _-·-·-· ----,~· ·.--···:_ .. .
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.
qualifies as ·a conviction. Matter of Rivera Valencia, 24 l&N
Dec. 484 (BIA 2008).
.

.

•. Probation Before Judgment. A court's grant of probation
before judgment generally constitutes a conviction under the
INA.. See generally, Yanez~Popp v. INS, 998 F.2d 231 (4th
Cir. 1993).
• Guilty Pleas Held in Abeyance. A guilty plea held in abeyance
may satisfy the statutory definition of conviction. U.S. v.
Zamudio,.314 F.3d 517 (10th Cir. 2002).
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App. 0546

Not a Conviction?
• New York's Pretrial Diversion Agreement (PDA) is generally not
q_Q_ sidered a _c9~y~ction bE?~~u~-~- . g~!l.t.. ~a-~ _ ~e~_n --~-~!a_qJi~h-~q····~·~ ---···-· -··- .... __ __ ~ ..
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trial, plea or admission; nor have sufficient facts been admitted to
support a finding of guilt. Iqbal v. Bryson; 5·0 4 F .Supp.2d 822
(E.D.Va. 2.009).
.
• · It's ·important to look at the actual diversionary agreement to see
. whether there was-any type of admission or finding of guilt in _he
t
written agreement. Generally there ·will not be, but there are some
states where admissio_ of guilt is required for en~ry ir:ito the program
n
(fairly rare to find these)

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App. 0547

Convictions - Appeals
A conviction is effective for immigration purpo. es, including
s
.. - ACA. .while it is on direct appeal.
D
,
•

See Plane v. Holder, 652 F .3d 991 (9th Cir. 2011 ), rehearing en
·bane .denied, 2012 WL 1994862 (2012).

•

If the conviction is ultimately.reversed on appeal, the DACA
requester is free ·to file a new request for DACA, with fee, if.
otherwise eligible

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App. 0548

Vacated I Expunged Convictions.
.,,

•. Generally speaking, convictions may be vacated -for one of two
reasons. _··· - ·- _.
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• .A conviction may be vacated due to a procedural or
substantive defect in the conviction itself
• A conviction may be vacated /expunged to provide post- .
r
conviction relief, such as a · ehabilitative provision that
removes the stigma ·of a convicti'on or an expungement for
·youth offenders or first-time offenders.

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App. 0549

Vacated I Expunged Convictions
(

• .FOR PURPOSES OF DACA-ONLY, these expunged -or
vacated convictions will NOT be treated as disqualifying
felonies or misdemeanors .
. - • Case-by-case assessment to determine whether the person ·
poses a threat to public safety a·nd whether the exercise of
prosecutorial ·discretion is warranted.
• Elevate for supervisory review . .

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App. 0550

Juveniles
• Juvenile delinquency adjudication is not a conviction . Matter of
Devison, 22 l&_ Dec. 1362 (BIA 2001 ). ·
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• .A conviction for immigration purposes includes convi. tion of an
alien unde,r age 18 who was charged as an adult.
• Juvenile -delinquency may impact public safety issues w hen
co.n sidering a request under DACA
• May also ·be c9nsidered in determining whether the exercise of
prosecutorial discretion is ·warranted.

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App. 0551

Pardons
· • A full ·a nd final unconditional U.S. pardon by th.e President or .
by the Governor of a .state can erase a conviction for
immigration purposes. See Matter of Nolan, 19 l&N Dec. 539
(BIA 1988).
.• Underlying offense may impact public safety. issues when
considering a request under DACA
May be considered in determining whether the exercise of
. prosecutorial. discretion is warranted.

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App. 0552

Exceptional Circumstances
• The requestor must specifically ask for the exception and must
fully ·document the exceptional circumstances.
·
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.

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·-Cri·m tnai·.history··and a·c tivities· co·m·p romising national security- · · ·
·
and public safety carry considerable weight in the totality of the
circumstances analysis.

• Requires truly exceptional circumstance to overcome.

•: . he determination that exceptional circumstances. exist
T
for deferral of removal under DACA will be made only at
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and · n ·e xtremehi rare~. cases ....... .......... ~ . ... . ... . ·-·i
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App. 0553

... . ,...

Handling Criminality, National Security or Public
Safety Concerns
The evaluation of criminal issues with respect to a DACA request is done after
=...,... .... ~u.. .. ...~~'8·eu·~vetting ""of--the"·-TE·es ~check ·and·the·U Fil"2·5-B·· fing·erprint

·-results · from ·-the"·FB+:

,.. _, __ ,........ ---~ -·· ··-· ·

If the up-front TECS check reveals a hit, the DACA request goes to BCU/Triage.
If the hit relates, BCW triage routes the DACA request tot.h e BCU for resolution.
If the FD 258 fingerprint results returri an IDENT, the BCU reviews the results to
determine whether they are germane to the DACA: request and the exercise of
. prosecutorial discretion. BCU will adjudicate all OACA requests with IDENT..
_ For guidance on when to seek supervisory review of a denial involving issues of
criminality, see Chapter 9, Section D.

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App. 0554

Handling Criminality, National Security or Public
Safety Concerns (Continued)
The evaluation of criminal issues with respect to a DACA request is done
after BCU vetting of the TECS check and the FD 258 fingerprint results from
. the FBI. If the up-front TECS check reveals a hit, the DACA request goes to
_... -·· ___...,_. ·- - ..BCU/.Tr.i.age_ .-....... --···-""'--·:... .- -· _, .... ·~--"-------~---- ·.-~..,- . 4. . -. -.-.,-. , ·--~J--~ ~-- · ·~---. .,. . .~, ,.. -· _ ,.. . -, ":. .,... ~.,,,-- . - -, -~-~--~··,,;.,. . -... -- ·.~.
...
·· _
""""~~·
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BCU Triage and Resolution Overview
1.

If the hit relates, BCU triage routes the DACA request to the BCU;

2. · BCU documents the TECS hit and the resolution in the ROIQ. While
·the DACA request is undergoing the up-front TECS check, the
DACA requester is placed in .the scheduling queue for an ASC ·
appointment to have his/her biometrics captured;
3.

.-·
ti)

4.

.

\
1

If the·FD 258 fingerprint results return an !DENT, the BCU reviews
e
the results to .determine whether they ar· germane to the DACA
request and the exercise of prosecutorial discretion;
BCU handles the case through to completion .

T) I.'" <'. .
., .
. , .. ,,. "-- Hl7.Cl1 Sll lp

· and lrn rnigration
Services

149
FOUO - Law Enforcement Sensitive

App. 0555

·Evaluating.Cases for EPS Concerns
The scope of criminal offenses deemed to be Egregious Public
Safety (EPS) concerns are described in the November 11, 201 1
,., . ........_. _____ , ____ NIA .me:r:n.o.randum .and the .ae.co.mpanyi.og.. M.O A between _.USCl.S. . n--·---~·-~- .... _
and ICE.
The nature and severity of the underlying crime or in th~ case of
multiple crimes, the totality of the crimes, are weighed heavily and
are si'gnificant unfavorable factors in evaluatir:ig public safety
·
concerns: regardless of the dispositi_ n of the crime( s ). ·
,
o
For ·example, an individual w.ith multiple arrests with no
convictions could pose significant public safety concerns.
·• . · Similarly, an individual arrested for multiple ass~ults or
other violent crimes could .be deemed a public safety risk.
•

9

;

~

lJ c c"· .
i ···'· ltl7.C'l1S111p
) and hnrnigration
Scrvicts

150

~

FOUO - Law Enforcement Sensitive

App. 0556

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