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)

Determining When a

Cas~

Requires BCU Handling
(Continued)

For Cases Indicating Criminal Issues (cont.)
' ··-··.-~., ....~,,"~·"-···· ··If the

req uesto F·answe red·-~~Yes!.~ · to ...cri min a lity questions -on--- -· ·
his/her DACA request then:

There is. clear derogatory information provided by
the reauestor and/or in our records;.
No derogatory information can be found in our ·
re~ords or it is unclear, and the requestor did not
provide any additional information or
documentation;

U.S. Cir.i1:cn:~hip
and .
Irnn1igratirn1
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.
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... -··

·-·· ..

Case is handled by the
BCU DACA Team.

152
FOUO - Law Enforcement Sensitive

App. 0558

-- . .

...

Handling DACA Cases with Public Safety Concerns
Criminal Cases with EPS Concerns
· -,_,~"'~,..,.._,~,.. lf.the~B.C_U,,~de.te:rmin.e.s the .cas.ap.res.e.ntsJssue.s .o.f. criminality, ____._. . .. ····~-.,...,-...,~.·-· ·- --. ,.,-- . --.,~
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processing of the DACA request must be categorized as either EPS
or non-EPS.
• Criminal cases d. termined to be Non-EPS are handled and
e
adjudicated by the BCU DACA Team.

·.·· .

.

.

· • Criminal cases determined to be E· s are handled by the .BCU
P
·· ·- · -··o ACA Team~ ·T he· BCU DACA Team shall refer the case to ICE
prior to adjudicating the case, eve·n if USCIS can deny the
DACA request on its merits. If ICE do· s not accept the referral,
e
the BCU will adjudicate the case.

153
FOUO - Law Enforcement Sensitive

App. 0559

Handling ·cases Involving NS Concerns (Continued)
If the requestor answered "Yes" to questions on the 1-821 D related to
~S issues of violent crimes_ terrC?rism, human rights violations,
,
persecution of others, etc. then:

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App. 0560

Handling Cases lndi.cating Possible Gang
Memb~rship I Activity (C. ntinued)
o
If the requestor disclosed issues indicating gang membership on
his/her 1-821 D, then:

There is clear derogatory
information provided by the
requestor and/or in our records,
No.derogatory information can be
found in our records or it is
unclear and the requester di. not
d
rovide information,

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Case is handled by the BCU
DACATeam.

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FOLIO - Law Enforcement Sensitive

App. 0561

When Supervisory Review is Required for Denials Involving
Issues of Criminality, Public Safety, or National Security
Denials due to the following issues of criminality require supervisory review:
·• Conviction for any crime committed before reaching age 18, and was tried
as an adult; or
• Conviction for a "significant misdemeanor;" or
.

.

· • No crimina. convictions and outwardly appears to meet the guidelin.es in the
1
Secretary's June 15, 2012 memorandum; however, based on other
derogatory information obtained through routine systems and
background/security checks, there are credible reasons to believe that the
requestor poses a threat .to national security or public safety. _ In these
instances the officer.should refer the proposed denial for supervisory
review: after the case has been processed through the CARRP process.
·NOTE: These are not the only denials that require supervisory
full list is discussed is the Decisions module.
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FOUO - Law Enforcement Sensitive

App. 0562

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App. 0563

Module Objective
• Understand how to detect potential fraud in the DACA context and
when to refer to CFDO for further research and evaluation.
• Identify what work product you can expect from the CFDO.
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••

Describe the pU-rpose of the Intelligence Compass.

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•
a nn 1111 nng,r;:it ion
,

161

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St:rv.;ce:;

FOUO - Law Enforcement Sensitive

App. 0564

Fraud Review and Fraud Referrals
In the normal course of adjudication, officers should be aware of potential
fraud indicators.

Fraud encompasses any material representation or omission,
accompanied by.an intent to deceive.

Fraud-related concerns should be addressed according to the March
2011 Fraud. Detection SOP and the 2008 ICE/USCIS Investigation of
Immigration Benefit Fraud MOA.

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162

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FOUO - Law Enforcement Sensitive

App. 0565

Fraud Review and Fraud Referrals (Continued)
In the immigration conte):(t, fraud is a willful misrepresentation of a
material fact. An omission of a. material fact can also constitute a willful
misrepresentation, rising to the revel of fraud.
When reviewing an imniig·ration reque~t, a..findihg of fraud is generally
supported the by presence of the following three elements.
1. There must have been a misrepresentation or concealment
of a fact;
2. · The misrepresentation or concealment must have been
willful; and
3. .The fact must be material. . ·
A finding of fraud is also supported when the immigration filing contains
fraudulent documents that are germane.

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;:111d rn1n1i 9ral"ion

St~rv ices

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FOUO - Law Enforcement Sensitive

App. 0566

How to Evaluate Inconsistencies
Many DACA requesters were. brought to the United States as
young .children by their parents.
.. __ ..
Documents that officers are generally accustomed to seeing may or
may not be available.
The absence of a given document does· not in and of itself mean
that a guideline is not met, nor is· it necessarily an indicator of fraud .
DA~A

req. estors have spent a significant portion of their live~ in
µ
the United States as minors: Thus, the requisite intent normally
.associated with fraud and willful misrepresentation ·may not be
present.

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164
FOUO - Law Enforcement Sensitive

App. 0567

H. w to Evaluate Inconsistencies (Continued)
o
Applying the concept of the totality·of the circumstances, officers should·look
at the entire record, in. luding the DACA request, the supporting documents,
e
tt:ie results of background and security checks, and any information obtained
. from _
routine systems checks.
One example of an inconsistency could be the use of different names.
• Officers might see name discrepancies in school or employment records.
• Name discrepancies! standing alone, may not necessarily be a fraud _
indicator.
• Officers need not issue an RFE for evidence-of a legal name change or ot her
eviden·ce; or refer the case to CFDO, if they can reconcile the discrepancy by
applying .the totality of the circumstances test.

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Se r vi c~s

FOUO - Law Enforcement Sensitive

App. 0568

Potential Fraud Indicators
In the DACA context, examples
include: .

of p otential fraud indicators could

. • U.S. Citizenship
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166

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FOUO - Law Enforcement Sensitive

App. 0569

Fraud Indicators (cont'd)

When needed, CFDO can call the State· DOE to verify education.

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FOUO - Law Enforcement Sensitive

App. 0570

FONS in the DACA Process
• The Fraud Detection and National Security (FONS) Directorate
administratively investigates allegations of immigration benefit fraud
and produces a Statement of Findings (SOF) that adjudicators use to
render their decisions.
• In the DACA context, the SOF will docum~nt all fraud findings and
u.nderlying issues impacting the favorable exercise of prosecutorial ·
discretion.
• When adjudicating Forms 1-821 D and 1-765 for DACA, officers will
refer.cases to the CFDO via a fraud referral sheet when there are
articulable elements of fraud found within the filing. Officers will refer
cases prior to taking any adjudication action even if there are issues
which negate the.exercise of prosecutorial discretion to defer
removal.

lJ.S. Cit izcnship
.n1d lnnn1gr.il ion
~en ices -

168
FOUO - Law Enforcement Sensitive

App. 0571

The Work Product You Can Expect From the CFDO
Officers can expect a complete SOF documenting the results of the
. following:

• Extensive syste.ms checks

• Phone calls

• USCIS systems

• Schools

• LEA systems

• State Departments .of
Education

• Other government systems

• Employers
• Electronic records ·
, · ·· .... -·.· - ~~ ... .... · e Commercial databases
• Public records
• Education systems
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1 ~nd !n1n1igr(1tion
0crv1ccs
• __ ..

169

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FOLIO - Law Enforcement Sensitive

App. 0572

Limitations of the CFDO
• Interviews only in rare circumstances
• Schools may not be able to divulge information to the CFDO due to
privacy laws - great variation in school documents.
.
.
- . • · · s. a .result, the CFDO's inability to obtain any information from the school is
A
not necessarily indicative of fraud.

• Always remember, many DACA requestors might have limited
documentary evidence.
.

.

• Sometimes one document can meet more than one guideline and other ·
times, .several documents, viewed. together, can meet a single g~ideline .

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170
FOLIO - Law Enforcement Sensitive

App. 0573

What Will You Receive from CFDO?
• Results of investigation documented in Statement of Findings (SOF)
• Fraud Found, Fraud Not Found, Inconclusive
• Fraud Found SOF can be used to issue a Notice to Appear
• One piece of the evidence puzzle
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App. 0574

CFDO Referrals and Responses
• The CFDO findings will be recorded in FONS-OS and reported in an
SOF and placed in the A-file to. enable officers to make accurate and
informed decisions on the DACA requests .
..._,. .........,. .,,,, _.--,.~ ...! ......Den.i.al.s..base.
d

oo a.Jinding .. of fraud must be recorded in C3.

• DACA cases denied due to confirmed fraud shall be referred for NTA
issuance in accordance with the NTA memorandum dated November
7, ·2011. The a·p propriate NTA charge will be determined on a caseby-case basis in consultation with local counsel.

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172
FOUO - Law Enforcement Sensitive

App. 0575

Inadmissibility Due to Fraud or Misrepresentation
Individuals requesting DACA are not subject to the 212 inadmissibility
grounds, because they are neither applying for a visa nor seeking admission
to the United States~ Instead, they are seeking the exercise of for deferral of
removal under DACA.
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If Fraud.is found in a DACA request
The presence of confirmed or suspected fraud issues are germane in
deciding whether it is appropriate to defer removal under DACA.
•

As a result, when an individual is found to have committed fraud in connection with
a DACA request, the DACA request is denied not because the individual is
inadmissible due to fraud, but rather, because the fraud negates the exercise of
discretion to defer removal.
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Denials are to be supported by a properly documented SOE
NTA issuance is in accordance with the NTA memorandum dated November
7, 2011.
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FOUO - Law Enforcement Sensitive

App. 0576

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The Intelligence Compass
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Identifies trends and patterns in immigration, migrant flows, and fraud practices, as
well as fraud indicators. It is an additional tool available to officers-to assist them in
established fraud detection procedures

Does not in itself establish an element of fraud . It may assist officers in identifying
·-..).,.. ..,......,. - ··~·-~-~~additional ··lines---of·inquiry ..or·identifying·-cases for-further scrutiny or referral t o Center ·· ···
·
Fraud Detection Operations· (CFDO) or other FONS officers
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No information in the Intelligence Compass will be used to determine the adjudication
of any immigration benefit

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App. 0577

Module Objectives
The objective of this section is to :
• Understan9 plain language basics;
• Introduce the use of the standard DACA RFE templates, which are
mandatory; and;
11

Understand and apply the elements of the new RFE templates .

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181
FOUO - Law Enforcement Sensitive

App. 0578

Plain Language Basics
USCIS policy directs the use of plain language in RFEs, NOIDs,. and
other communications with its customers
Use of Plain Language in DACA-related RFEs and NOIDs:
• Shows customer focus
• Communicates more effectively
•. Reduces time spent explaining
-

• Improves·compliance
• Reduces ambiguity and complaints
• Reduces the likelihood of ·S RMTs or possible litigation

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182

App. 0579

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Plain Language Basics (Continued)
A goal of Plain Language is that the intended message is clearly and
completely understood the first time an individual reads the document.
·· ~-·

·",. .·-- ·- ' ·-Tu··create~·p1a-in Languag· ·content for·DACA
e

communication~

use:

• Simple words
• Active voice
• "You" in place of "the requestor''
.. • Short sentences (approx. 20 words or less) and brief paragraphs
(7 sentences or less)
11

Bulleted lists

• . Extra blank spaces on the page for readability.

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183

App. 0580

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Word and Phrase Usage
SUGGESTED ALTERNATIVES

WORD TO AVOID
e

•

allege

•· ·claim

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state; explain; say; suggest

-~-·-···stale; ·exprain·;···si1y; ·si19· - sf
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ludicrous
preposterous

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merely

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outlandish·

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poppycock

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not credible·

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prove

show; ·establish

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ridiculous

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not c redible.

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on·l y; o r delete altogether

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and In1n1igrJ.tion
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did not submit
not credible
not credible

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FOUO - Law Enforcement Sensitive

184

App. 0581

• • ..

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• ., ,., ••• ' •

Clear and Focused RFEs
A series of RFE templates have been created for DACA and are
included in the DACA SOP. These DACA RFE templates w ill be
loaded to all centers' common drive/correspondence generator. Use
~-n- ~.,,~,····· ··~ 0f.these-- RF-E·· tem- l· tes ~is ·· m- Adatory .·. --1-nd·ivid ual ized, locally ·created ·
pa
a
RFEs shall not be used. When an officer encounters an issue for
which there is no RFE template, the officer must work throug_
h
his/her supervisor to identify the iss·u e .for SCOPS so that a template
can be created.
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Better requests lead to better RFE responses.
T he DACA ·RFE·temp·l ates implement standards from the RFE
initiative.

l.lS_. Citi7.enship
and In11nigrati.on
Services

FOLIO - Law Enforcement Sensitive

185

App. 0582

RFE Tips
•
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A key goal for DACA is consistency.
Use the standard DACA RFE templates only .
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Add appropriate additional language to inform the requestor:
1.

What evidence was already submitted,

2.

Why the previously submitted evidence is deficient, and

3.

What evidence he/she needs to provide.

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186

App. 0583

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Neutral-Tone
.

.

• ISOs are "triers of the facts." This means that RFEs will
have a neutral tone and will weigh evidence to
determine only whether the basic requireme'nts have
been met.

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187

App. 0584

Use of Legal Citation

1 ·"·· - ··0 . . .. -,. _
··'·

• The RFE will use Plain Langua.ge. Officers should not
-i- sert .. an, . .c itations .to statutes, regulations, case law, .
n
y
the AFM, etc .

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188

App. 0585

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·Module Objectives
The objective of this section is to:
• Provide a basic understanding of the requirements to properly update
C3;
• Understand the C3 updates required for BCU and CFDO activity;
• Understand the supervisory review process for denials;
• Understand the categories that require supervisory review; .and
• Introduce the mandatory DACA denial template.

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190
FOUO - Law Enforcement Sensitive

App. 0587

Processing Decisions
• All actions taken on a DACA request m~st be reflected on C3,
.... including approval, continuation, denial or a customer service
.
.
1.nqu1ry.
• Standard History Action Codes will be used with the exception
of SRMT actions.
·
·
• Denials based on a fraud finding must reflect its designated
History Action Code ["EC"].

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191
FOUO - Law Enforcement Sensitive

App. 0588

Processing Decisions BCU and CFoo·C3 codes
• Gases being transferred to the BCU DACA Team - C3 shall be
updated with ["FF5"] Sent to the Background Check Unit (BCU) for
resolution .
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G·a ses·being·returned·to Adjudications·from the··BCU DACA ·Team-·or ···.'·· ~ -.. -.·· ·
just prior to final adjudications by the BCU DACA Team shall be
updated with ["HCC5"] Received from Background Check Unit (BCU)
with Resolution

, ..

· · 11 ··

·c ases being transferred to the CFDO with a fraud referral ·shall be
updated with ["FF1 "] Sent to the Fraud Detection Unit (FDU) for
Analysis
·Cases-·being returned to Adjudications from the CFDO shall be
updated with ["HCC1 "]Returned from Fraud .Detection Unit (FDU)
with Results.

1J.S. Cit i:.u~n~,h ip
;1nd l1nn1igratfon
Sc- v 1· '.,., · ·
r· '-'-:-,

192
FOUO - Law Enforcement Sensitive

App. 0589

Processing Decisions - Fraud Indicators
If fraud indicators are present during the case review process,
- ··· -~·· -· ..... · ··~ ...the c.ase..sb. ll..be.forw. rd.ed to_
a
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t
fraud ·referral sheet prior to any further adjudicatory actions.
11

11

If the case is returned with a finding of fraud, the filing shall be
· denied with a finding of fraud "EC".

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Services

193
FOLIO - Law Enforcement

S~nsitlve

App. 0590

Processing Decisions - RFE
For DACA requests, when requesting additional evidence, an RFE
will be used. · A NOID will rarely be used. Appendix D has a list of
DACA RFE call ups to be used when processing a DACA request

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194
FOLIO - Law Enforcement Sensitive

App. 0591

Processing Decisions - NOID
Following a determination to issue a NOID, the Service Center must
take the following steps to process the NOID.

~
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~ U.S. Citi7.cnship
1 and Innni<:.>r.ttion
" Services '"
'

195
FOUO - law Enforcement Sensitive

App. 0592

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