96-10157. Executive Office for Immigration Review; Motions and Appeals in Immigration Proceedings  

  • [Federal Register Volume 61, Number 83 (Monday, April 29, 1996)]
    [Rules and Regulations]
    [Pages 18900-18910]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 96-10157]
    
    
    
    
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    _______________________________________________________________________
    
    Part IV
    
    
    
    
    
    Department of Justice
    
    
    
    
    
    _______________________________________________________________________
    
    
    
    8 CFR Part 1, et al.
    
    
    
    Executive Office of Immigration Review; Motions and Appeals in 
    Immigration Proceedings; Final Rule
    
    Federal Register / Vol. 61, No. 83 / Monday, April 29, 1996 / Rules 
    and Regulations
    
    [[Page 18900]]
    
    
    
    DEPARTMENT OF JUSTICE
    
    8 CFR Parts 1, 3, 103, 208, 212, 242, and 246
    
    [EOIR No. 102F; AG Order No. 2020-96]
    RIN 1125-AA01
    
    
    Executive Office for Immigration Review; Motions and Appeals in 
    Immigration Proceedings
    
    AGENCY: Department of Justice.
    
    ACTION: Final rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: This final rule streamlines motions and appeals practice 
    before the Board of Immigration Appeals (``Board''), and establishes a 
    centralized procedure for filing notices of appeal, fees, fee waiver 
    requests, and briefs directly with the Board. The rule establishes time 
    and number limitations on motions to reconsider and on motions to 
    reopen and makes certain changes to appellate procedures, in great 
    measure, to reflect the statutory directives of section 545 of the 
    Immigration Act of 1990. The new 30-day period for filing appeals and 
    the provisions for filing appeals directly with the Board apply to 
    Immigration Judge decisions issued on or after the effective date of 
    the final rule.
    
    EFFECTIVE DATE: July 1, 1996.
    
    FOR FURTHER INFORMATION CONTACT:
    Margaret M. Philbin, General Counsel, Executive Office for Immigration 
    Review, Suite 2400, 5107 Leesburg Pike, Falls Church, Virginia 22041, 
    (703) 305-0470.
    
    SUPPLEMENTARY INFORMATION: Under the final rule, parties will have the 
    opportunity to file only one motion to reopen and one motion to 
    reconsider during the administrative adjudication process. In most 
    instances, the motion to reopen must be filed not later than 90 days 
    after the date on which the final administrative decision was rendered 
    or on or before September 30, 1996, whichever is later. Generally, a 
    motion to reconsider must be filed not later than 30 days after the 
    date on which the final administrative decision was rendered on or 
    before July 31, 1996 whichever is later. The rule also provides that a 
    notice of appeal will be timely if filed within 30 days of the issuance 
    of an Immigration Judge's decision. The Department notes that the new 
    30-day period for filing appeals and the provisions for filing appeals 
    directly with the Board apply to Immigration Judge decisions issued on 
    or after the effective date of the final rule. Therefore, the old 
    regulation's 10-day period (13 days if the appeal is mailed) for filing 
    appeals and provisions for filing appeals with the Immigration Courts 
    apply to Immigration Judge decisions issued before the effective date 
    of this rule.
        The rule outlines the required content of motions and notices of 
    appeal, and requires parties to file or remit directly with the Board 
    of Immigration Appeals (``Board''): (1) All motions to reopen and 
    motions to reconsider decisions of the Board pertaining to proceedings 
    before Immigration Judges; (2) all notices of appeals of decisions of 
    Immigration Judges; and (3) all relevant fees or fee waiver requests. 
    Furthermore, the rule addresses the definition of the term ``lawfully 
    admitted for permanent residence,'' the procedure for certifying a case 
    to the Board, and appeals of in absentia decisions. The Department 
    notes that the field sites of the Executive Office for Immigration 
    Review (``EOIR''), formerly referred to as the Offices of the 
    Immigration Judges, are now called Immigration Courts.
        The Department of Justice has published a number of proposed rules 
    addressing both the motion practice and the appeals process before the 
    Board. Most recently, the Department published a proposed rule 
    regarding these procedures in May 1995 that incorporated and expanded 
    proposed rules published in May and June 1994. 60 FR 24573 (May 9, 
    1995); 59 FR 29386 (June 7, 1994); 59 FR 24977 (May 13, 1994).
        In response to the above rulemakings, the Department received 71 
    comments. The comments addressed a number of issues, including the 
    definition of the term ``lawfully admitted for permanent residence,'' 
    the time and number limitations on motions to reopen and reconsider, 
    the availability of an appeal where an order has been entered in 
    absentia (particularly in exclusion proceedings), the streamlined 
    appeals procedure, and the construction of briefing schedules for both 
    motions and appeals.
        The Department has carefully considered and evaluated the issues 
    raised by the commenters and has modified the rule considerably. The 
    following sections summarize the comments, set forth the responses of 
    the Department of Justice, and explain the final provisions adopted. We 
    note that a number of technical corrections were made to the proposed 
    rule. These corrections include the addition of 8 U.S.C. 1282, 31 
    U.S.C. 9701 and 8 CFR part 2 to the authority citation for Part 208 and 
    the addition of 8 U.S.C. 1252a to the authority citation for Part 242.
    
    (1) Definition of Lawful Permanent Resident--Section 1.1(p)
    
        Comment: Some commenters objected that the definition of the term 
    ``lawfully admitted for permanent residence'' in section 1.1(p) 
    provides that lawful permanent resident status terminates upon the 
    entry of a final administrative order of exclusion or deportation. They 
    argued that lawful permanent resident status is not deemed to be 
    terminated during the pendency of petitions for review, motions to 
    reopen and/or reconsider, and habeas corpus proceedings, citing cases 
    in the United States Courts of Appeal for the Ninth and Second 
    Circuits. Butros v. INS, 990 F.2d 1142 (9th Cir. 1993); Vargas v. INS, 
    938 F.2d 358 (2d Cir. 1991). In those cases, the courts held that under 
    the regulations regarding motions to reopen, lawful permanent resident 
    status could not be terminated prior to the alien's actual physical 
    departure from the United States.
        Response and Disposition: After careful consideration, the 
    Department has decided to retain the regulation as previously proposed. 
    The finding that lawful permanent resident status terminates upon the 
    entry of a final administrative order of exclusion or deportation was 
    established by the Board in Matter of Lok, 18 I&N Dec. 101 (BIA 1981). 
    The Lok rule has been upheld by courts of appeals in at least four 
    circuits and provides finality in immigration proceedings. See 
    Jaramillo v. INS, 1 F.3d 1149 (11th Cir. 1993); Katsis v. INS, 997 F.2d 
    1067 (3d Cir. 1993), cert denied, 114 S.Ct. 902 (1994); Variamparambil 
    v. INS, 831 F.2d 1362 (7th Cir. 1987); Rivera v. INS, 810 F.2d 540 (5th 
    Cir. 1987). In addition, the Ninth Circuit recently held that where 
    deportability is not contested, lawful permanent resident status for 
    purposes of an application for a waiver under section 212(c) of the 
    Immigration and Nationality Act (``Act'') terminates upon the entry of 
    an administratively final order of exclusion or deportation. Foroughi 
    v. INS, 60 F.3d 510 (9th Cir. 1995).
        The decisions in Butros and Vargas were tied closely to the former 
    regulations regarding motions. In Butros, the court emphasized that the 
    former section 3.2 was written very broadly and concluded that since 
    the only expressed barrier to reopening or reconsideration contained in 
    the regulation was actual departure from the United States, the Board 
    could not by decision limit the right to reopening. However, the court 
    specifically provided that the ``Board could, no doubt, alter this 
    regulation'' to allow
    
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    further restrictions. 990 F.2d. at 1144. In Vargas, the Second Circuit 
    also found that the former regulations preserved an alien's right to 
    move for reopening until the occurrence of physical deportation. The 
    court reasoned that, although the Board's decision in Lok prevented 
    reopening by an alien who had not accrued the required seven years 
    prior to a final administrative order of deportation, the Second 
    Circuit would not allow the Board, through the denial of a motion, to 
    extend the Lok rationale to terminate an alien's previously existing 
    eligibility for section 212(c) relief. 938 F.2d at 361. This final rule 
    addresses the ambiguity of the regulatory language noted in the Second 
    and Ninth Circuit decisions by establishing clear limits on the ability 
    to file a motion to reopen and the concomitant effect on the alien's 
    status as a lawful permanent resident. The definition at section 1.1 
    will be applied nationwide, which will promote the goal of uniform 
    application of the immigration laws.
        Sections 3.2(c)(1) and 3.23(b)(4) are further amended to clarify 
    that, notwithstanding the provisions of section 1.1(p) of this chapter, 
    if an alien accrues the seven years of lawful unrelinquished domicile 
    necessary for eligibility for a waiver under section 212(c) of the Act 
    prior to the entry of an administratively final order of exclusion or 
    deportation, he or she may file a motion to reopen for consideration or 
    further consideration of such an application. An alien may not accrue 
    time toward the seven years of lawful unrelinquished domicile required 
    for section 212(c) purposes after the entry of a final administrative 
    order of exclusion or deportation.
    
    (2) Motions To Reopen--Sections 3.2 and 3.23
    
        Comment: Commenters noted that motions to reopen can serve any of 
    three fundamental purposes: (i) to provide an opportunity to bring new 
    evidence to light; (ii) to allow parties to avail themselves of recent 
    changes in the law; and (iii) to provide an opportunity for an 
    applicant to seek additional relief that was not previously available. 
    Given those purposes, commenters objected to the rule's time and number 
    limitations on motions to reopen.
        The May 1995 proposed rule expanded the filing period for motions 
    to reopen from 20 days to 90 days. Commenters stated that this period 
    was insufficient to fulfill the purposes of motions to reopen as set 
    forth above. Commenters advocated either the elimination of any defined 
    filing period for motions to reopen or further expansion of the filing 
    period. In support of this position, they cited to a study conducted by 
    the Attorney General in 1991 (``AG Study''), see summary at 68 
    INTERPRETER RELEASES No. 27 at 907 (July 22, 1991), which concluded 
    that there was no abuse of the motions process. From this conclusion, 
    commenters disputed the necessity for any reform of the motions 
    process. A number of commenters alternatively requested that a ``good 
    cause'' exception to the time and number limitations be added to the 
    new provisions concerning motions to reopen.
        Some commenters requested clearer language in section 3.2(c)(4) 
    regarding the motions to reopen and motions to remand provision. 
    Particularly, commenters were concerned that the rule required, rather 
    than permitted, the Board to remand a motion to reopen to an 
    Immigration Judge or a Service Officer when an appeal had already been 
    filed. Commenters advocated a rule that would expressly state that the 
    Board had discretion to render a decision on a motion to reopen without 
    remanding the motion.
        Response and Disposition: After careful consideration, the 
    Department has decided to retain both the time and the number 
    limitations applicable to motions to reopen. The provision instituting 
    motions reform is statutorily required. The Immigration Act of 1990, 
    Pub. L. No. 101-649, 104 stat. 4978 (1990), states that ``the Attorney 
    General shall issue regulations with respect to * * * the period of 
    time in which motions to reopen and to reconsider may be offered in 
    deportation proceedings, which regulations shall include a limitation 
    on the number of such motions that may be filed and a maximum time 
    period for the filing of such motions.'' Immigration Act of 1990 at 
    Sec. 545(d), 104 stat. at 5066. The Joint Explanatory Statement of the 
    Committee of Conference, H.R. Conf. Rep. No. 955, 101st Cong., 2d Sess. 
    (1990) (``Conference Report''), explained this provision as follows: 
    ``Unless the Attorney General finds reasonable evidence to the 
    contrary, the regulations should state that such motions be made within 
    20 days of the date of the final determination in the proceeding and 
    that such motions be limited to one motion to reopen and one motion to 
    reconsider.'' H.R. Conf. Rep. No. 955 at 133.
        Some commenters argued that the Conference Report suggested that 
    the Attorney General has discretion to not promulgate the regulations 
    if she ``finds reasonable evidence to the contrary.'' However, the 
    Department of Justice believes that the statutory directive to 
    promulgate regulations limiting motions to reopen is mandatory. The 
    Attorney General is only given discretion to determine the number of 
    motions and the length of time to file such motions. It does not give 
    the Attorney General discretion to determine whether to promulgate a 
    rule putting limitations on motions.
        Moreover, in a recent case, the Supreme Court noted that the 
    Immigration Act of 1990, which amended the Act, demonstrated a 
    congressional intent to ``expedite petitions for review and to redress 
    the related problem of successive and frivolous administrative appeals 
    and motions.'' Stone v. INS, 115 S.Ct. 1537, 1546 (1995). Justice 
    Kennedy, writing for the majority, stated:
    
        Congress' intent in adopting and then amending the Act was to 
    expedite both the initiation and the completion of the judicial 
    review process. * * * [A] principal purpose of the 1990 amendments 
    to the Act was to expedite petitions for review and to redress the 
    related problem of successive and frivolous administrative appeals 
    and motions. In the Immigration Act of 1990, Congress * * * [f]irst 
    * * * directed the Attorney General to promulgate regulations 
    limiting the number of reconsideration and reopening motions that an 
    alien could file. Sec. 545(b). Second, it instructed the Attorney 
    General to promulgate regulations specifying the maximum time period 
    for the filing of those motions, hinting that a 20-day period would 
    be appropriate.
    
    Stone v. INS, 115 S.Ct. at 1546 (emphasis supplied).
    
        Although the AG Study concluded that there was not significant 
    abuse of the process, Congress has neither rescinded or amended its 
    mandate to limit the number and time frames of motions. Therefore, the 
    Attorney General's obligation to comply with Congress' statutory 
    directive is unaffected by the conclusions of the AG Study.
        Prior to the final rulemaking, provisions concerning a time limit 
    for filing motions to reopen were published twice in proposed form. See 
    60 FR 24573 (May 9, 1995) and 59 FR 29386 (June 7, 1994). Consonant 
    with the Conference Report, the first proposed rule provided for a 20-
    day time frame to file a motion. The Department received considerable 
    comment regarding the 1994 proposed rule. In response to the arguments 
    raised by the commenters, the May 1995 proposed rule provided for an 
    expanded 90-day time frame to file motions to reopen. The Department 
    received considerable comment in response to the May 1995 proposed 
    rule, with many commenters arguing that even the 90-day time frame was
    
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    inadequate for the reasons previously stated.
        After carefully weighing all of the comments, the Department has 
    decided to retain the amount of time to file a motion to reopen at 90 
    days as provided in the May 1995 proposed rule. The 90-day time period 
    represents a considerable extension beyond the 20 days suggested in the 
    Conference Report. A time frame of 90 days for filing motions to reopen 
    will provide parties an opportunity to avail themselves of changed law, 
    facts, and circumstances. By setting a time limitation and retaining 
    the one motion limitation, the rule is consistent with section 545 of 
    the Immigration Act of 1990 and the directions of the Conference 
    Report. The 90-day time period also conforms to the period provided in 
    section 106(a) of the Act for filing a petition for review in federal 
    court from a final order of deportation (except, of course, for aliens 
    convicted of an aggravated felony who are limited to 30 days in which 
    to file a petition for review). Therefore, the 90-day period is likely 
    to promote consolidation of petitions for review of final orders of 
    deportation and motions, thereby increasing judicial efficiency.
        The Department does not agree with the commenters' suggestions that 
    a ``good cause exception'' would be an appropriate procedural mechanism 
    for addressing exceptional cases that fall beyond this rule's time and 
    number limitations. Instead, section 3.2(a) of the rule provides a 
    mechanism that allows the Board to reopen or reconsider sua sponte and 
    provides a procedural vehicle for the consideration of cases with 
    exceptional circumstances.
        The final rule corrects a technical error found in the May 1995 
    proposed rule regarding stays of deportation. In that proposed rule, 
    section 3.2(f) indicated that except where a motion is filed pursuant 
    to the provisions of section 3.23(b)(5), the filing of a motion to 
    reopen shall not stay the execution of any decision. This language is 
    identical to that found in the prior June 1994 proposed rule. However, 
    because of renumbering in the May 1995 proposed rule, section 3.2(f) 
    should have referenced section 3.23(b)(6), not section 3.23(b)(5) to 
    remain consistent. This oversight has been corrected although the 
    section numbering has again changed. The correct cross reference in the 
    final rule has become section 3.23(b)(4)(iii).
        The Department has clarified the language of section 3.2(c)(4) by 
    replacing the word ``shall'' in the May 1995 proposed regulation with 
    the word ``may'' in the final rule. This language expressly recognizes 
    the Board's discretion to decide whether to treat a motion to reopen as 
    a motion to remand when it is filed at specified procedural junctures, 
    i.e., at the time of the filing of an appeal or during the pendency of 
    such an appeal but prior to a final Board decision. In such instances, 
    motions to remand are not subject to the time and number limitations on 
    motions to reopen and motions to reconsider as they occur before the 
    entry of a final administrative decision. For that reason, the final 
    rule drops the technically incorrect time and number limitation 
    language that appeared in the proposed rule. However, this provision 
    does not limit the Board's discretion to resolve a case without 
    remanding it.
        In order to provide more consistency and uniformity in appellate 
    procedures, section 3.2(g)(3), regarding the motions briefing schedule, 
    has been changed to provide the opposing party 13 days from the date of 
    service of the motion to file a brief in opposition to a motion, 
    regardless of whether the motion is before the Board or the Service.
    
    (3) Motions To Reconsider--Sections 3.2 and 3.23
    
        Comment: A number of commenters objected to section 3.2(b) of the 
    May 1995 proposed rule, which allowed a petitioner to file only one 
    motion to reconsider within 30 days of the final administrative 
    decision, as unduly restrictive. The proposed 30-day filing period was 
    increased from the 20-day filing period of the June 1994 proposed rule. 
    However, commenters stated that even the 30-day time limit would work a 
    hardship on litigants, particularly pro se litigants. Furthermore, they 
    stated that the time limit might cut off meritorious claims. Some 
    commenters found the 30-day time limit adequate.
        Some commenters argued that the AG Study supported the contention 
    that reform of the immigration motions process is unnecessary. They 
    also disputed that motion reform was mandated by the Immigration Act of 
    1990.
        Response and Disposition: The final rule retains the proposed 
    rule's provisions regarding the time and number limitations on motions 
    to reconsider. The Department believes that these provisions afford 
    parties a sufficient opportunity to seek reexamination of certain 
    issues and also respond to the mandates of the Immigration Act of 1990 
    to impose time and number limitations on motions.
        The purpose of a motion to reconsider a decision is to provide an 
    opportunity to reexamine the facts or to correct an error of law. The 
    time limitation ensures that such reexamination occurs before the facts 
    surrounding the decision become stale. The Department believes that the 
    30-day time frame is an appropriate time period to meet those goals. 
    Furthermore, it provides parties a sufficient amount of time to draft 
    and file the motion and is consistent with the 30-day time frame for 
    filing a notice of appeal. To make it clearer and more accessible to 
    the parties, section 3.23 has been reorganized.
    
    (4) New Appeal Filing Procedures--Sections 3.3, 3.8, 3.38, 242.21 and 
    246.7
    
        Comment: The vast majority of the commenters applauded the proposal 
    to streamline and centralize the appeal process. They were particularly 
    pleased that the notice of appeal and the fees/fee waiver requests 
    would be filed directly with the Board. However, commenters were 
    concerned that the requirement to provide a detailed statement of the 
    reasons for appeal in the notice of appeal essentially required an 
    appellant to argue his or her case prematurely. They suggested that 
    this requirement would be particularly burdensome to pro se and non-
    English speaking appellants.
        Commenters objected to the proposed time frames for filing notices 
    of appeal. Specifically, they stated that a period of 15 calendar days 
    from the issuance of an Immigration Judge's decision, where the 
    decision is rendered orally, and 20 calendar days from the mailing of 
    an Immigration Judge's decision, where a written decision is served by 
    mail, was too little time, particularly in light of the notice of 
    appeal's detailed statement requirement and delays in the mail service.
        Commenters further argued that the appeals briefing schedule 
    provision, which accords non-detained aliens 30 days to file a brief 
    and detained aliens 14 days to file a brief, was inequitable and 
    fundamentally unfair because it treated two classes of appellants 
    differently. They also noted that the rule created a particular 
    hardship for detained appellants who, because of the fact of their 
    detention, have difficulty meeting filing deadlines. The commenters 
    were further concerned that the rule could be understood to require 
    parties to file briefs prior to receipt of the transcript.
        Response and Disposition: The final rule retains the provisions 
    that streamline and centralize the appeals process. As outlined in the 
    proposed rule and republished in the final rule, the new appeals system 
    requires parties to file all notices of appeal of decisions of 
    Immigration Judges and all fee-related documents directly with the 
    Board. The
    
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    final rule has been amended to provide that a notice of appeal must be 
    filed within 30 calendar days after the mailing of an Immigration 
    Judge's written decision or within 30 days of the stating of an 
    Immigration Judge's oral decision. The time frame has been increased in 
    order to address concerns raised both by the circuit courts of appeals 
    and the commenters regarding the sufficiency of time to initiate the 
    appellate process. In keeping with the Department's goal of 
    streamlining the appeals process, the rule provides a uniform filing 
    process, whether the Immigration Judge's decision was rendered orally 
    or was written and served by mail.
        The new process addresses concerns, identified by the Ninth 
    Circuit, about both the prior 10-day filing time period for appeals and 
    the requirement that parties remit the fee in one forum and file the 
    notice of appeal in another. See Gonzales-Julio v. INS, 34 F. 3d 820 
    (9th Cir. 1994); Vlaicu v. INS, 998 F. 2d 758 (9th Cir. 1993). This 
    final rule responds to those concerns by expanding the filing time for 
    appeal to 30 days and by requiring that the notice of appeal and the 
    fee be filed at the same place and time.
        Additionally, the final rule makes uniform the briefing schedule 
    for both detained and non-detained appellants. Although the proposed 
    rule never anticipated requiring parties to submit a brief prior to 
    transcript availability in those cases which are transcribed, the final 
    rule contains clarifying language to that effect.
        The Department has retained the requirement that parties 
    specifically identify their reasons for appeal on the notice of appeal. 
    The Board has repeatedly found this statement provides meaningful 
    information that aids the Board's review of the cases. Matter of 
    Valencia, 19 I&N Dec. 354 (BIA 1986); Matter of Holguin, 13 I&N Dec. 
    423 (BIA 1969). Furthermore, the statement requirement has been 
    consistently upheld by the circuit courts. Soriano v. INS, 45 F.3d 287 
    (8th Cir. 1995); Nazakat v. INS, 981 F.2d 1146 (10th Cir. 1992); 
    Toquero v. INS, 956 F.2d 193 (9th Cir. 1992); Lozada v. INS, 857 F.2d 
    10 (1st Cir. 1988); Bonne-Annee v. INS, 810 F.2d 1077 (11th Cir. 1987); 
    Townsend v. INS, 799 F.2d 179 (5th Cir. 1986).
        A new paragraph ``(e)'' has been added to section 3.38 to inform 
    aliens that they are required to notify the Board within five working 
    days of any changes of address or telephone number and to inform the 
    aliens' representatives that changes in a representative's business 
    mailing address or telephone number also should be submitted to the 
    Board. The change of address and telephone number notification 
    requirement mirrors the reporting requirements in section 3.15 relating 
    to proceedings before Immigration Judges. Additionally, the Department 
    will issue a new Appeal Fee Waiver Request Form (EOIR-26A) in 
    conjunction with the enactment of this final rule. Parties unable to 
    pay the fee fixed for an appeal will be required to file this form with 
    their notice of appeal. The Department notes that this constitutes a 
    change from the Board's past practice of accepting in pauperis 
    affidavits and other informal requests to waive fees. The new Appeal 
    Fee Waiver Request (Form EOIR-26A) will provide a uniform mechanism for 
    requesting the Board to waive an appeal fee.
    
    (5) In Absentia Hearings--Sections 3.1, 3.23 and 242.21
    
        Comments: Commenters correctly asserted that section 242B(c) of the 
    Act regarding in absentia hearings applies only to deportation 
    proceedings. Therefore, they argued, a provision disallowing appeals 
    from orders of exclusion entered in absentia lacks statutory authority. 
    Commenters noted that the statute does not authorize in absentia 
    exclusion hearings and advocated the withdrawal of the provision that 
    provides for such hearings.
        One commenter suggested that the in absentia hearing provisions in 
    section 242B restrict only motions to reopen and judicial review and do 
    not bar the timely filing of a notice of appeal on the merits of the 
    case where a respondent receives notification of the in absentia order 
    prior to expiration of the time to file an appeal. The commenter 
    advocated allowing direct appeals under such circumstances.
        Commenters also objected to section 3.23(b)(4)(iii), formerly 
    section 3.23(b)(6), which specifies under what circumstances an order 
    of deportation entered in absentia may be rescinded. They noted that 
    the rule makes no provision for rescission of an order of exclusion 
    entered in absentia.
        Response and Disposition: With regard to in absentia hearings under 
    section 242B(c) of the Act, the commenters are correct that the statute 
    only applies to deportation hearings and does not apply to in absentia 
    exclusion hearings and, further, that appeals from orders entered 
    following such exclusion hearings should be allowed. Therefore, the 
    provision in section 3.1(b)(1) of the proposed regulation that stated 
    that ``no appeal shall lie from an order of exclusion entered in 
    absentia'' has been removed. An appeal from an order of exclusion 
    entered in absentia is permissible but must be filed within the time 
    limit for appeals set by section 3.38(b).
        Further, an alien may file a motion to reopen exclusion proceedings 
    to rescind an order of exclusion entered in absentia. Such a motion 
    must be supported by evidence that the alien had reasonable cause for 
    his failure to appear at the exclusion hearing. This provision is 
    consistent with the Board's decision in Matter of Haim, 19 I&N Dec. 641 
    (BIA 1988).
        The rule retains the provision prohibiting an appeal to the Board 
    from an Immigration Judge's order of deportation entered in absentia. 
    Congress restricted review of deportation orders entered in absentia in 
    section 242B of the Act by providing that such orders may only be 
    rescinded by filing a motion to reopen with the Immigration Judge. See 
    section 242B(c)(1) of the Act; Matter of Gonzalez-Lopez, Interim 
    Decision #3198 (BIA 1993). Further, the Board has confirmed that 
    sections 3.1(b) and 3.3 allow an alien to appeal to the Board from an 
    Immigration Judge's denial of such a motion to reopen an in absentia 
    decision. Matter of Gonzales-Lopez at 4.
        In addition to restricting the manner in which an in absentia order 
    of deportation may be rescinded, Congress delayed eligibility for most 
    forms of relief from deportation for an alien against whom a final 
    order of deportation is entered in absentia. See section 242B(e) of the 
    Act. Specifically, where the alien fails to demonstrate improper notice 
    or exceptional circumstances for failing to appear, the alien must wait 
    until five years after the final order of deportation to apply for 
    relief such as voluntary departure, suspension of deportation, or 
    adjustment of status. Accordingly, the Department has determined that a 
    bar against direct appeals from an in absentia deportation order of an 
    Immigration Judge to the Board is consistent with the restrictive 
    action Congress has taken towards such in absentia orders.
        The Department considered the commenters' request for an appeal to 
    the Board on the merits of a deportation case in which an in absentia 
    order has been entered. However, we note that there exists the 
    opportunity for review of such an order in the federal courts. Section 
    106 of the Act provides for judicial review of final orders of 
    deportation including those entered in absentia. Specifically, section 
    242(B)(c)(4) allows for judicial review of an order entered in absentia 
    under
    
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    section 242B, regarding the validity of the notice provided to the 
    alien, the reasons for the alien's failure to appear, and the question 
    of whether the Service demonstrated deportability by clear, convincing, 
    and unequivocal evidence. Further, section 106(a)(5) of the Act allows 
    for the direct de novo review of a final administrative order of 
    deportation in federal district court, including one entered in 
    absentia, where the alien makes a non-frivolous claim to be a national 
    of the United States. In sum, given Congress' restrictive stance in 
    section 242B of the Act regarding review of orders of deportation 
    entered in absentia and in light of the fact that avenues still exist 
    for review in federal court of such orders, the Department has retained 
    the bar on direct appeals to the Board from an Immigration Judge's 
    order of deportation entered in abstentia.
        This regulation has been drafted and reviewed in accordance with 
    Executive Order 12866, section 1(b). The Attorney General has 
    determined that this rule is not a significant regulatory action under 
    Executive Order 12866, section 3(f), and, accordingly, this rule has 
    not been reviewed by the Office of Management and Budget.
        The Attorney General, in accordance with the Regulatory Flexibility 
    Act (5 U.S.C. 605(b)), has reviewed this final rule and, by approving 
    it, certifies that this rule will not have a significant economic 
    impact on a substantial number of small entities.
        This final rule will not have substantial direct effects on the 
    states, on the relationship between the national government and the 
    states, or on the distribution of power and responsibilities among the 
    various levels of government. Therefore, in accordance with section 6 
    of Executive Order 12612, it is determined that this rule does not have 
    sufficient federalism implications to warrant the preparation of a 
    Federalism Assessment.
    
    List of Subjects
    
    8 CFR Part 1
    
        Administrative practice and procedure, Immigration.
    
    8 CFR Part 3
    
        Administrative practice and procedure, Immigration, Organization 
    and functions (Government agencies).
    
    8 CFR Part 103
    
        Administrative practice and procedure, Authority delegations 
    (Government agencies), Freedom of information, Privacy, Reporting and 
    record keeping requirements, Surety bonds.
    
    8 CFR Part 208
    
        Administrative practice and procedure, Aliens, Immigration, 
    Reporting and record keeping requirements.
    
    8 CFR Part 212
    
        Administrative practice and procedure, Aliens, Immigration, 
    Passports and visas, Reporting and record keeping requirements.
    
    8 CFR Part 242
    
        Administrative practice and procedure, Aliens.
    
    8 CFR Part 246
    
        Administrative practice and procedure, Aliens, Immigration.
    
        Accordingly, Chapter I of title 8 of the Code of Federal 
    Regulations is amended as follows:
    
    PART 1--DEFINITIONS
    
        1. The authority citation for part 1 continues to read as follows:
    
        Authority: 66 Stat. 173; 8 U.S.C. 1101; 28 U.S.C. 509, 510; 5 
    U.S.C. 301.
    
        2. Section 1.1 is amended by adding a new paragraph (p) to read as 
    follows:
    
    
    Sec. 1.1   Definitions.
    
    * * * * *
        (p) The term lawfully admitted for permanent residence means the 
    status of having been lawfully accorded the privilege of residing 
    permanently in the United States as an immigrant in accordance with the 
    immigration laws, such status not having changed. Such status 
    terminates upon entry of a final administrative order of exclusion or 
    deportation.
    
    PART 3--EXECUTIVE OFFICE FOR IMMIGRATION REVIEW
    
        3. The authority citation for part 3 continues to read as follows:
    
        Authority: 5 U.S.C. 301; 8 U.S.C. 1103, 1252 note, 1252b, 1362; 
    28 U.S.C. 509, 510, 1746; sec. 2, Reorg. Plan No. 2 of 1950, 3 CFR, 
    1949-1953 Comp., p. 1002.
    
        4. Section 3.1 is amended by revising paragraphs (b)(1), (b)(2), 
    and (c) to read as follows:
    
    
    Sec. 3.1   General authorities.
    
    * * * * *
        (b) * * *
        (1) Decisions of Immigration Judges in exclusion cases, as provided 
    in part 236 of this chapter.
        (2) Decisions of Immigration Judges in deportation cases, as 
    provided in part 242 of this chapter, except that no appeal shall lie 
    from an order of deportation entered in absentia. No appeal shall lie 
    from an order of an Immigration Judge under Sec. 244.1 of this chapter 
    granting voluntary departure within a period of at least 30 days, if 
    the sole ground of appeal is that a greater period of departure time 
    should have been fixed.
     * * * * *
        (c) Jurisdiction by certification. The Commissioner, or any other 
    duly authorized officer of the Service, any Immigration Judge, or the 
    Board may in any case arising under paragraph (b) of this section 
    certify such case to the Board. The Board in its discretion may review 
    any such case by certification without regard to the provisions of 
    Sec. 3.7 if it determines that the parties have already been given a 
    fair opportunity to make representations before the Board regarding the 
    case, including the opportunity request oral argument and to submit a 
    brief.
     * * * * *
        5. Section 3.2 is revised to read as follows:
    
    
    Sec. 3.2  Reopening or reconsideration.
    
        (a) General. The Board may at any time reopen or reconsider on its 
    own motion any case in which it has rendered a decision. A request to 
    reopen or reconsider any case in which a decision has been made by the 
    Board, which request is made by the Service, or by the party affected 
    by the decision, must be in the form of a written motion to the Board. 
    The decision to grant or deny a motion to reopen or reconsider is 
    within the discretion of the Board, subject to the restrictions of this 
    section. The Board has discretion to deny a motion to reopen even if 
    the party moving has made out a prima facie case for relief.
        (b) Motion to reconsider. (1) A motion to reconsider shall state 
    the reasons for the motion by specifying the errors of fact or law in 
    the prior Board decision and shall be supported by pertinent authority. 
    A motion to reconsider a decision rendered by an Immigration Judge or 
    Service officer that is pending when an appeal is filed with the Board, 
    or that is filed subsequent to the filing with the Board of an appeal 
    from the decision sought to be reconsidered, shall be deemed a motion 
    to remand the decision for further proceedings before the Immigration 
    Judge or the Service officer from whose decision the appeal was taken. 
    Such motion, which shall be consolidated with and considered by the 
    Board in connection with any appeal to the Board, is subject to the 
    time and numerical limitations of paragraph (b)(2) of this section.
        (2) A motion to reconsider a decision must be filed with the Board 
    within 30
    
    [[Page 18905]]
    
    days after the mailing of the Board decision or on or before July 31, 
    1996, whichever is later. A party may file only one motion to 
    reconsider any given decision and may not seek reconsideration of a 
    decision denying a previous motion to reconsider.
        (c) Motion to reopen. (1) A motion to reopen proceedings shall 
    state the new facts that will be proven at a hearing to be held if the 
    motion is granted and shall be supported by affidavits or other 
    evidentiary material. A motion to reopen proceedings for the purpose of 
    submitting an application for relief must be accompanied by the 
    appropriate application for relief and all supporting documentation. A 
    motion to reopen proceedings shall not be granted unless it appears to 
    the Board that evidence sought to be offered is material and was not 
    available and could not have been discovered or presented at the former 
    hearing; nor shall any motion to reopen for the purpose of affording 
    the alien an opportunity to apply for any form of discretionary relief 
    be granted if it appears that the alien's right to apply for such 
    relief was fully explained to him or her and an opportunity to apply 
    therefore was afforded at the former hearing, unless the relief is 
    sought on the basis of circumstances that have arisen subsequent to the 
    hearing. Subject to the other requirements and restrictions of this 
    section, and notwithstanding the provisions in Sec. 1.1(p) of this 
    chapter, a motion to reopen proceedings for consideration or further 
    consideration of an application for relief under section 212(c) of the 
    Act (8 U.S.C. 1182(c)) may be granted if the alien demonstrates that he 
    or she was statutorily eligible for such relief prior to the entry of 
    the administratively final order of deportation.
        (2) Except as provided in paragraph (c)(3) of this section, a party 
    may file only one motion to reopen proceedings (whether before the 
    Board or the Immigration Judge) and that motion must be filed not later 
    than 90 days after the date on which the final administrative decision 
    was rendered in the proceeding sought to be reopened, or on or before 
    September 30, 1996, whichever is later.
        (3) The time and numerical limitations set forth in paragraph 
    (c)(2) of this section shall not apply to a motion to reopen 
    proceedings:
        (i) Filed pursuant to the provisions of Sec. 3.23(b)(4)(iii);
        (ii) To apply or reapply for asylum, or withholding of deportation, 
    based on changed circumstances arising in the country of nationality or 
    in the country to which deportation has been ordered, if such evidence 
    is material and was not available and could not have been discovered or 
    presented at the former hearing; or
        (iii) Agreed upon by all parties and jointly filed. Notwithstanding 
    such agreement, the parties may contest the issues in a reopened 
    proceeding.
        (4) A motion to reopen a decision rendered by an Immigration Judge 
    or Service officer that is pending when an appeal is filed, or that is 
    filed while an appeal is pending before the Board, may be deemed a 
    motion to remand for further proceedings before the Immigration Judge 
    or the Service officer from whose decision the appeal was taken. Such 
    motion may be consolidated with, and considered by the Board in 
    connection with, the appeal to the Board.
        (d) Departure or deportation. A motion to reopen or a motion to 
    reconsider shall not be made by or on behalf of a person who is the 
    subject of deportation or exclusion proceedings subsequent to his or 
    her departure from the United States. Any departure from the United 
    States, including the deportation of a person who is the subject of 
    deportation or exclusion proceedings, occurring after the filing of a 
    motion to reopen or a motion to reconsider, shall constitute a 
    withdrawal of such motion.
        (e) Judicial proceedings. Motions to reopen or reconsider shall 
    state whether the validity of the deportation or exclusion order has 
    been or is the subject of any judicial proceeding and, if so, the 
    nature and date thereof, the court in which such proceeding took place 
    or is pending, and its result or status. In any case in which a 
    deportation or exclusion order is in effect, any motion to reopen or 
    reconsider such order shall include a statement by or on behalf of the 
    moving party declaring whether the subject of the order is also the 
    subject of any pending criminal proceeding under section 242(e) of the 
    Act (8 U.S.C. 1252(e)), and, if so, the current status of that 
    proceeding. If a motion to reopen or reconsider seeks discretionary 
    relief, the motion shall include a statement by or on behalf of the 
    moving party declaring whether the alien for whose relief the motion is 
    being filed is subject to any pending criminal prosecution and, if so, 
    the nature and current status of that prosecution.
        (f) Stay of deportation. Except where a motion is filed pursuant to 
    the provisions of Sec. 3.23(b)(4)(iii), the filing of a motion to 
    reopen or a motion to reconsider shall not stay the execution of any 
    decision made in the case. Execution of such decision shall proceed 
    unless a stay of execution is specifically granted by the Board, the 
    Immigration Judge, or an authorized officer of the Service.
        (g) Filing procedures. (1) English language, entry of appearance, 
    and proof of service requirements. A motion and any submission made in 
    conjunction with a motion must be in English or accompanied by a 
    certified English translation. If the moving party, other than the 
    Service, is represented, a Notice of Entry of Appearance as Attorney or 
    Representative Before the Board (Form EOIR-27) must be filed with the 
    motion. In all cases, the motion shall include proof of service on the 
    opposing party of the motion and all attachments.
        (2) Distribution of motion papers. (i) A motion to reopen or motion 
    to reconsider a decision of the Board pertaining to proceedings before 
    an Immigration Judge shall be filed directly with the Board. Such 
    motion must be accompanied by a check, money order, or fee waiver 
    request in satisfaction of the fee requirements of Sec. 3.8. The record 
    of proceeding pertaining to such a motion shall be forwarded to the 
    Board upon the request or order of the Board.
        (ii) A motion to reopen or a motion to reconsider a decision of the 
    Board pertaining to a matter initially adjudicated by an officer of the 
    Service shall be filed with the officer of the Service having 
    administrative control over the record of proceeding.
        (iii) If the motion is made by the Service in proceedings in which 
    the Service has administrative control over the record of proceedings, 
    the record of proceedings in the case and the motion shall be filed 
    directly with the Board. If such motion is filed directly with an 
    office of the Service, the entire record of proceeding shall be 
    forwarded to the Board by the Service officer promptly upon receipt of 
    the briefs of the parties, or upon expiration of the time allowed for 
    the submission of such briefs.
        (3) Briefs and response. The moving party may file a brief if it is 
    included with the motion. If the motion is filed directly with the 
    Board pursuant to paragraph (g)(2)(i) of this section, the opposing 
    party shall have 13 days from the date of service of the motion to file 
    a brief in opposition to the motion directly with the Board. If the 
    motion is filed with an office of the Service pursuant to paragraph 
    (g)(2)(ii) of this section, the opposing party shall have 13 days from 
    the date of filing of the motion to file a brief in opposition to the 
    motion directly with the office of the Service. In all cases, briefs 
    and any other filings made in conjunction with a motion shall include 
    proof of service on the opposing party. The Board, in its
    
    [[Page 18906]]
    
    discretion, may extend the time within which such brief is to be 
    submitted and may authorize the filing of a brief directly with the 
    Board. A motion shall be deemed unopposed unless a timely response is 
    made. The Board may, in its discretion, consider a brief filed out of 
    time.
        (h) Oral argument. A request for oral argument, if desired, shall 
    be incorporated in the motion to reopen or reconsider. The Board, in 
    its discretion, may grant or deny requests for oral argument.
        (i) Ruling on motion. Rulings upon motions to reopen or motions to 
    reconsider shall be by written order. If the order directs a reopening 
    and further proceedings are necessary, the record shall be returned to 
    the Immigration Court or the officer of the Service having 
    administrative control over the place where the reopened proceedings 
    are to be conducted. If the motion to reconsider is granted, the 
    decision upon such reconsideration shall affirm, modify, or reverse the 
    original decision made in the case.
        6. Section 3.3 is revised to read as follows:
    
    
    Sec. 3.3  Notice of appeal.
    
        (a) Filing. (1) Appeal from decision of an Immigration Judge. A 
    party affected by a decision who is entitled under this chapter to 
    appeal to the Board from a decision of an Immigration Judge shall be 
    given notice of his or her right to appeal. An appeal from a decision 
    of an Immigration Judge shall be taken by filing a Notice of Appeal to 
    the Board of Immigration Appeals of Decision of Immigration Judge (Form 
    EOIR-26) directly with the Board, within the time specified in the 
    governing sections of this chapter. The appealing parties are only 
    those parties who are covered by the decision of an Immigration Judge 
    and who are specifically named on the Notice of Appeal. The appeal must 
    be accompanied by a check, money order, or fee waiver request in 
    satisfaction of the fee requirements of Sec. 3.8. If the respondent/
    applicant is represented, a Notice of Entry of Appearance as Attorney 
    or Representative Before the Board (Form EOIR-27) must be filed with 
    the Notice of Appeal. The appeal must reflect proof of service of a 
    copy of the appeal and all attachments on the opposing party. The 
    appeal and all attachments must be in English or accompanied by a 
    certified English translation. An appeal is not properly filed unless 
    it is received at the Board, along with all required documents, fees or 
    fee waiver requests, and proof of service, within the time specified in 
    the governing sections of this chapter. A notice of appeal may not be 
    filed by any party who has waived appeal pursuant to Sec. 3.39.
        (2) Appeal from decision of a Service officer. A party affected by 
    a decision who is entitled under this chapter to appeal to the Board 
    from a decision of a Service officer shall be given notice of his or 
    her right to appeal. An appeal from a decision of a Service officer 
    shall be taken by filing a Notice of Appeal to the Board of Immigration 
    Appeals of Decision of District Director (Form EOIR-29) directly with 
    the office of the Service having administrative control over the record 
    of proceeding within the time specified in the governing sections of 
    this chapter. The appeal must be accompanied by a check, money order, 
    or fee waiver request in satisfaction of the fee requirements of 
    Sec. 3.8 and, if the appellant is represented, a Notice of Entry of 
    Appearance as Attorney or Representative Before the Board (Form EOIR-
    27). The appeal and all attachments must be in English or accompanied 
    by a certified English translation. An appeal is not properly filed 
    until its receipt at the appropriate office of the Service, together 
    with all required documents and fees, and the fee provisions of 
    Sec. 3.8 are satisfied.
        (b) Statement of the basis of appeal. The party taking the appeal 
    must identify the reasons for the appeal in the Notice of Appeal (Form 
    EOIR-26 or Form EOIR-29) or in any attachments thereto, in order to 
    avoid summary dismissal pursuant to Sec. 3.1(d)(1-a)(i). The statement 
    must specifically identify the findings of fact, the conclusions of 
    law, or both, that are being challenged. If a question of law is 
    presented, supporting authority must be cited. If the dispute is over 
    the findings of fact, the specific facts contested must be identified. 
    Where the appeal concerns discretionary relief, the appellant must 
    state whether the alleged error relates to statutory grounds of 
    eligibility or to the exercise of discretion and must identify the 
    specific factual and legal finding or findings that are being 
    challenged. The appellant must also indicate in the Notice of Appeal 
    (Form EOIR-26 or Form EOIR-29) whether he or she desires oral argument 
    before the Board and whether he or she will be filing a separate 
    written brief or statement in support of the appeal.
        (c) Briefs. (1) Appeal from decision of an Immigration Judge. 
    Briefs in support of or in opposition to an appeal from a decision of 
    an Immigration Judge shall be filed directly with the Board. In those 
    cases that are transcribed, the briefing schedule shall be set by the 
    Board after the transcript is available. An appellant shall be provided 
    30 days in which to file a brief, unless a shorter period is specified 
    by the Board. The appellee shall have the same period of time in which 
    to file a reply brief that was initially granted to the appellant to 
    file his or her brief. The time to file a reply brief commences from 
    the date upon which the appellant's brief was due, as originally set or 
    extended by the Board. The Board, upon written motion, may extend the 
    period for filing a brief or a reply brief for up to 90 days for good 
    cause shown. In its discretion, the Board may consider a brief that has 
    been filed out of time. All briefs, filings, and motions filed in 
    conjunction with an appeal shall include proof of service on the 
    opposing party.
        (2) Appeal from decision of a Service officer. Briefs in support of 
    or in opposition to an appeal from a decision of a Service officer 
    shall be filed directly with the office of the Service having 
    administrative control over the file in accordance with a briefing 
    schedule set by that office. The alien shall be provided 30 days in 
    which to file a brief, unless a shorter period is specified by the 
    Service officer from whose decision the appeal is taken. The Service 
    shall have the same period of time in which to file a reply brief that 
    was initially granted to the alien to file his or her brief. The time 
    to file a reply brief commences from the date upon which the alien's 
    brief was due, as originally set or extended. Upon written request of 
    the alien, the Service officer from whose decision the appeal is taken 
    or the Board may extend the period for filing a brief for good cause 
    shown. The Board may authorize the filing of briefs directly with the 
    Board. In its discretion, the Board may consider a brief that has been 
    filed out of time. All briefs and other documents filed in conjunction 
    with an appeal, unless filed by an alien directly with a Service 
    office, shall include proof of service on the opposing party.
        (d) Effect of certification. The certification of a case, as 
    provided in this part, shall not relieve the party affected from 
    compliance with the provisions of this section in the event that he or 
    she is entitled and desires to appeal from an initial decision, nor 
    shall it serve to extend the time specified in the applicable parts of 
    this chapter for the taking of an appeal.
        (e) Effect of departure from the United States. Departure from the 
    United States of a person who is the subject of deportation 
    proceedings, prior to the taking of an appeal from a decision in his or 
    her case, shall constitute a waiver of his or her right to appeal.
        7. Section 3.4 is revised to read as follows:
    
    [[Page 18907]]
    
    Sec. 3.4   Withdrawal of appeal.
    
        In any case in which an appeal has been taken, the party taking the 
    appeal may file a written withdrawal thereof with the office at which 
    the notice of appeal was filed. If the record in the case has not been 
    forwarded to the Board on appeal in accordance with Sec. 3.5, the 
    decision made in the case shall be final to the same extent as if no 
    appeal had been taken. If the record has been forwarded on appeal, the 
    withdrawal of the appeal shall be forwarded to the Board and, if no 
    decision in the case has been made on the appeal, the record shall be 
    returned and the initial decision shall be final to the same extent as 
    if no appeal had been taken. If a decision on the appeal has been made 
    by the Board in the case, further action shall be taken in accordance 
    therewith. Departure from the United States of a person who is the 
    subject of deportation proceedings subsequent to the taking of an 
    appeal, but prior to a decision thereon, shall constitute a withdrawal 
    of the appeal, and the initial decision in the case shall be final to 
    the same extent as though no appeal had been taken.
        8. Section 3.5 is revised to read as follows:
    
    
    Sec. 3.5   Forwarding of record on appeal.
    
        (a) Appeal from decision of an Immigration Judge. If an appeal is 
    taken from a decision of an Immigration Judge, the record of proceeding 
    shall be forwarded to the Board upon the request or the order of the 
    Board.
        (b) Appeal from decision of a Service officer. If an appeal is 
    taken from a decision of a Service officer, the record of proceeding 
    shall be forwarded to the Board by the Service officer promptly upon 
    receipt of the briefs of the parties, or upon expiration of the time 
    allowed for the submission of such briefs. A Service officer need not 
    forward such an appeal to the Board, but may reopen and reconsider any 
    decision made by the officer if the new decision will grant the benefit 
    that has been requested in the appeal. The new decision must be served 
    on the appealing party within 45 days of receipt of any briefs or upon 
    expiration of the time allowed for the submission of any briefs. If the 
    new decision is not served within these time limits or the appealing 
    party does not agree that the new decision disposes of the matter, the 
    record of proceeding shall be immediately forwarded to the Board.
        9. Section 3.6 is revised to read as follows:
    
    
    Sec. 3.6   Stay of execution of decision.
    
        (a) Except as provided under Sec. 242.2(d) of this chapter and 
    paragraph (b) of this section, the decision in any proceeding under 
    this chapter from which an appeal to the Board may be taken shall not 
    be executed during the time allowed for the filing of an appeal unless 
    a waiver of the right to appeal is filed, nor shall such decision be 
    executed while an appeal is pending or while a case is before the Board 
    by way of certification.
        (b) The provisions of paragraph (a) of this section shall not apply 
    to an order of an Immigration Judge under Sec. 3.23 or Sec. 242.22 of 
    this chapter denying a motion to reopen or reconsider or to stay 
    deportation, except where such order expressly grants a stay or where 
    the motion was filed pursuant to the provisions of Sec. 3.23(b)(4)(ii). 
    The Board may, in its discretion, stay deportation while an appeal is 
    pending from any such order if no stay has been granted by the 
    Immigration Judge or a Service officer.
        10. Section 3.7 is revised to read as follows:
    
    
    Sec. 3.7  Notice of Certification.
    
        Whenever, in accordance with the provisions of Sec. 3.1(c), a case 
    is certified to the Board, the alien or other party affected shall be 
    given notice of certification. An Immigration Judge or Service officer 
    may certify a case only after an initial decision has been made and 
    before an appeal has been taken. If it is known at the time the initial 
    decision is rendered that the case will be certified, the notice of 
    certification shall be included in such decision and no further notice 
    of certification shall be required. If it is not known until after the 
    initial decision is rendered that the case will be certified, the 
    office of the Service or the Immigration Court having administrative 
    control over the record of proceeding shall cause a Notice of 
    Certification to be served upon the parties. In either case, the notice 
    shall inform the parties that the case is required to be certified to 
    the Board and that they have the right to make representations before 
    the Board, including the making of a request for oral argument and the 
    submission of a brief. If either party desires to submit a brief, it 
    shall be submitted to the office of the Service or the Immigration 
    Court having administrative control over the record of proceeding for 
    transmittal to the Board within the time prescribed in Sec. 3.3(c). The 
    case shall be certified and forwarded to the Board by the office of the 
    Service or Immigration Court having administrative jurisdiction over 
    the case upon receipt of the brief, or upon the expiration of the time 
    within which the brief may be submitted, or upon receipt of a written 
    waiver of the right to submit a brief. The Board in its discretion may 
    elect to accept for review or not accept for review any such certified 
    case. If the Board declines to accept a certified case for review, the 
    underlying decision shall become final on the date the Board declined 
    to accept the case.
        11. Section 3.8 is revised to read as follows:
    
    
    Sec. 3.8  Fees.
    
        (a) Appeal from decision of an Immigration Judge or motion within 
    the jurisdiction of the Board. Except as provided in paragraph (c) of 
    this section or when filed by an officer of the Service, a Notice of 
    Appeal to the Board of Immigration Appeals of Decision of Immigration 
    Judge (Form EOIR-26) filed pursuant to Sec. 3.3(a), or a motion related 
    to Immigration Judge proceedings that is within the jurisdiction of the 
    Board and is filed directly with the Board pursuant to Sec. 3.2(g), 
    shall be accompanied by the fee specified in applicable provisions of 
    Sec. 103.7(b)(1) of this chapter. Fees shall be paid by check or money 
    order payable to the ``United States Department of Justice.'' 
    Remittances must be drawn on a bank or other institution located in the 
    United States and be payable in United States currency. A remittance 
    shall not satisfy the fee requirements of this section if the 
    remittance is found uncollectible.
        (b) Appeal from decision of a Service officer or motion within the 
    jurisdiction of the Board. Except as provided in paragraph (c) of this 
    section, a Notice of Appeal to the Board of Immigration Appeals of 
    Decision of District Director (Form EOIR-29), or a motion related to 
    such a case filed under this part by any person other than an officer 
    of the Service, filed directly with the Service shall be accompanied by 
    the appropriate fee specified, and remitted in accordance with the 
    provisions of Sec. 103.7 of this chapter.
        (c) Waiver of fees. The Board may, in its discretion, authorize the 
    prosecution of any appeal or any motion over which the Board has 
    jurisdiction without payment of the required fee. In any case in which 
    an alien or other party affected is unable to pay the fee fixed for an 
    appeal or motion, he or she shall file with the Notice of Appeal (Form 
    EOIR-26 or Form EOIR-29) or motion, an Appeal Fee Waiver Request, (Form 
    EOIR-26A). If the request does not establish the inability to pay the 
    required fee, the appeal or motion will not be deemed properly filed.
        12. Section 3.23 is amended by revising paragraph (b) to read as 
    follows:
    
    [[Page 18908]]
    
    Sec. 3.23  Motions.
    
    * * * * *
        (b) Reopening/Reconsideration. (1) The Immigration Judge may upon 
    his or her own motion, or upon motion of the trial attorney or the 
    alien, reopen or reconsider any case in which he or she has made a 
    decision, unless jurisdiction in the case is vested in the Board of 
    Immigration Appeals under part 3 of this chapter. If the Immigration 
    Judge is unavailable or unable to adjudicate the motion to reopen, the 
    Chief Immigration Judge or his delegate shall reassign such motion to 
    another Immigration Judge. Motions to reopen or reconsider a decision 
    of the Immigration Judge must filed with the Immigration Court having 
    administrative control over the record of proceeding. Such motions 
    shall comply with applicable provisions of 8 CFR 208.4, 208.19, and 
    242.22. The Immigration Judge may set and extend time limits for 
    replies to motions to reopen or reconsider. A motion shall be deemed 
    unopposed unless timely response is made. A motion to reconsider shall 
    state the reasons for the motion and shall be supported by pertinent 
    authority. Any motion to reopen for the purpose of acting on an 
    application for relief must be accompanied by the appropriate 
    application for relief and all supporting documents.
        (2) Upon request by an alien in conjunction with a motion to reopen 
    or a motion to reconsider, the Immigration Judge may stay the execution 
    of a final order of deportation or exclusion. The filing of a motion to 
    reopen pursuant to the provisions of paragraph (b)(4)(iii) of this 
    section shall stay the deportation of the alien pending decision on the 
    motion and the adjudication of any properly filed administrative 
    appeal.
        (3) A motion to reconsider must be filed on or before July 31, 
    1996, on which the decision for which reconsideration is being sought 
    was rendered, or whichever is later. A party may file only one motion 
    to reconsider any given decision and may not seek reconsideration of a 
    decision denying a previous motion to reconsider.
        (4) A motion to reopen will not be granted unless the Immigration 
    Judge is satisfied that evidence sought to be offered is material and 
    was not available and could not have been discovered or presented at 
    the hearing. A motion to reopen will not be granted for the purpose of 
    providing the alien an opportunity to apply for any form of 
    discretionary relief if the alien's rights to make such application 
    were fully explained to him or her by the Immigration Judge and he or 
    she was afforded an opportunity to apply at the hearing, unless the 
    relief is sought on the basis of circumstances that have arisen 
    subsequent to the hearing. Subject to the other requirements and 
    restrictions of this section, and notwithstanding the provisions in 
    1.1(p) of this chapter, a motion to reopen proceedings for 
    consideration or further consideration of an application for relief 
    under section 212(c) of the Act (8 U.S.C. 1182(c)) may be granted if 
    the alien demonstrates that he or she was statutorily eligible for such 
    relief prior to the entry of the administratively final order of 
    deportation.
        (i) Except as provided in paragraph (b)(4)(ii) of this section, a 
    party may file only one motion to reopen proceedings (whether before 
    the Board or the Immigration Judge) and that motion must be filed not 
    later than 90 after the date on which the final administrative decision 
    was rendered in the proceeding sought to be reopened, or on or before 
    September 30, 1996, whichever is later.
        (ii) The time and numerical limitations set forth in paragraph 
    (b)(4)(i) of this section shall not apply to a motion to reopen filed 
    pursuant to the provisions of paragraph (b)(4)(iii) of this section, or 
    to a motion to reopen proceedings to apply or reapply for asylum or for 
    withholding of deportation based on changed circumstances, which arise 
    subsequent to the conclusion of proceedings, in the country of 
    nationality or in the country to which deportation has been ordered, or 
    to a motion to reopen agreed upon by all parties and jointly filed.
        (iii) A motion to reopen deportation proceedings to rescind an 
    order of deportation entered in absentia must be filed:
        (A) Within 180 days after the date of the order of deportation. The 
    motion must demonstrate that the failure to appear was because of 
    exceptional circumstances beyond the control of the alien (e.g., 
    serious illness of the alien or death of an immediate relative of the 
    alien, but not including less compelling circumstances); or
        (B) At any time if the alien demonstrates that the alien did not 
    receive notice in accordance with subsection 242B(a)(2) of the Act (8 
    U.S.C. 1252b(a)(2)) and notice was required pursuant to such 
    subsection; or the alien demonstrates that the alien was in federal or 
    state custody and did not appear through no fault of the alien.
        (iv) A motion to reopen exclusion hearings on the basis that the 
    Immigration Judge improperly entered an order of exclusion in absentia 
    must be supported by evidence that the alien had reasonable cause for 
    his failure to appear.
        13. Section 3.24 is revised to read as follows:
    
    
    Sec. 3.24  Fees pertaining to matters within the jurisdiction of the 
    Immigration Judge.
    
        Unless waived by the Immigration Judge, any fee pertaining to a 
    matter within the jurisdiction of the Immigration Judge shall be 
    remitted in accordance with the provisions of Sec. 103.7 of this 
    chapter. Any such fee may be waived by the Immigration Judge upon a 
    showing that the respondent/applicant is incapable of paying the fees 
    because of indigency. A properly executed affidavit or unsworn 
    declaration made pursuant to 28 U.S.C. 1746 by the respondent/applicant 
    must accompany the request for waiver of fees and shall substantiate 
    the indigency of the respondent/application.
        14. Section 3.31 is amended by revising paragraph (b) to read as 
    follows:
    
    
    Sec. 3.31  Filing documents and applications.
    
    * * * * *
        (b) All documents or applications requiring the payment of a fee 
    must be accompanied by a fee receipt from the Service or by an 
    application for a waiver of fees pursuant to Sec. 3.24. Except as 
    provided in Sec. 3.8(a)(c), any fee relating to Immigration Judge 
    proceedings shall be paid to, and accepted by, any Service office 
    authorized to accept fees for other purposes pursuant to Sec. 103.7(a) 
    of this chapter.
    * * * * *
        15. Section 3.38 is amended by revising paragraph (b); 
    redesignating paragraphs (c) and (d) as paragraphs (f) and (g), 
    respectively; and adding new paragraphs (c),(d) and (e) to read as 
    follows:
    
    
    Sec. 3.38   Appeals.
    
    * * * * *
        (b) The Notice of Appeal to the Board of Immigration Appeals of 
    Decision of Immigration Judge (Form EOIR-26) shall be filed directly 
    with the Board of Immigration Appeals within 30 calendar days after the 
    stating of an Immigration Judge's oral decision or the mailing of an 
    Immigration Judge's written decision. If the final date for filing 
    falls on a Saturday, Sunday, or legal holiday, this appeal time shall 
    be extended to the next business day. A Notice of Appeal (Form EOIR-26) 
    may not be filed by any party who has waived appeal.
        (c) The date of filing of the Notice of Appeal (Form EOIR-26) shall 
    be the date the Notice is received by the Board.
        (d) A Notice of Appeal (Form EOIR-26) must be accompanied by the 
    appropriate fee or by an Appeal Fee Waiver Request (Form EOIR-26A). If 
    the fee is not paid or the Appeal Fee Waiver
    
    [[Page 18909]]
    
    Request (Form EOIR-26A) is not filed within the specified time period 
    indicated in paragraph(b) of this section, the appeal will not be 
    deemed properly filed and the decision of the Immigration Judge shall 
    be final to the same extent as though no appeal had been taken.
        (e) Within five working days of any change of address, an alien 
    must provide written notice of the change of address on Form EOIR-33 to 
    the Board. Where a party is represented, the representative should also 
    provide to the Board written notice of any change in the 
    representative's business mailing address.
    * * * * *
    
    PART 103--POWERS AND DUTIES OF SERVICE OFFICERS; AVAILABILITY OF 
    SERVICE RECORDS
    
        16. The authority citation for part 103 continues to read as 
    follows:
    
        Authority: 5 U.S.C. 552, 552(a); 8 U.S.C. 1101, 1103, 1201, 1252 
    note, 1252b, 1304, 1356; 31 U.S.C. 9701; E.O. 12356, 47 FR 14874, 
    15557, 3 CFR, 1982 Comp., p. 166; 8 CFR part 2.
    
    
    Sec. 103.5  [Amended]
    
        17. In Sec. 103.5, paragraph (a)(1)(i) is amended by revising the 
    phrase ``parts 210, 242, or 245a'' in the first sentence to read 
    ``parts 3, 210, 242 and 245a,''.
        18. In Sec. 103.7, paragraph (a) is revised to read as follows:
    
    
    Sec. 103.7   Fees.
    
        (a) Remittances. Fees prescribed within the framework of 31 U.S.C. 
    483a shall be submitted with any formal application or petition 
    prescribed in this chapter and shall be in the amount prescribed by law 
    or regulation. Except for fees remitted directly to the Board pursuant 
    to the provisions of Sec. 3.8(a) of this chapter, any fee relating to 
    any Executive Office for Immigration Review proceeding shall be paid 
    to, and accepted by, any Service office authorized to accept fees. 
    Payment of any fee under this section does not constitute filing of the 
    document with the Board or with the Immigration Court. The Service 
    shall return to the payer, at the time of payment, a receipt for any 
    fee paid. The Service shall also return to the payer any documents, 
    submitted with the fee, relating to any Immigration Judge proceeding. A 
    charge of $5 will be imposed if a check in payment of a fee is not 
    honored by the bank on which it is drawn. An issued receipt for any 
    such remittance shall not be binding if the remittance is found 
    uncollectible. Remittances must be drawn on a bank or other institution 
    located in the United States and be payable in United States currency. 
    Fees in the form of postage stamps shall not be accepted. Remittances 
    to the Service shall be made payable to the ``Immigration and 
    Naturalization Service,'' except that in case of applicants residing in 
    the Virgin Islands of the United States, the remittances shall be made 
    payable to the ``Commissioner of Finance of the Virgin Islands'' and, 
    in the case of applicants residing in Guam, the remittances shall be 
    made payable to the ``Treasurer, Guam.'' If application to the Service 
    is submitted from outside the United States, remittance may be made by 
    bank international money order or foreign draft drawn on a financial 
    institution in the United States and payable to the Immigration and 
    Naturalization Service in United States currency. Remittances to the 
    Board shall be made payable to the ``United States Department of 
    Justice.''
    * * * * *
    
    PART 208--PROCEDURES FOR ASYLUM AND WITHHOLDING OF DEPORTATION
    
        19. The authority citation for part 208 is revised to read as 
    follows:
    
        Authority: 8 U.S.C. 1103, 1158, 1226, 1252, 1252 note, 1252b, 
    1253, 1282 and 1283; 31 U.S.C. 9701; and 8 CFR part 2.
    
        20. In Sec. 208.19, paragraph (a) is revised to read as follows:
    
    
    Sec. 208.19  Motion to reopen or reconsider.
    
        (a) A proceeding in which asylum or withholding of deportation was 
    denied may be reopened or a decision from such a proceeding 
    reconsidered for proper cause upon motion pursuant to the requirements 
    of 8 CFR 3.2, 3.23, 103.5, and 242.22 where applicable.
    * * * * *
    
    PART 236--EXCLUSION OF ALIENS
    
        21. The authority citation for part 236 continues to read as 
    follows:
    
        Authority: 8 U.S.C. 1103, 1182, 1224, 1225, 1226, 1362.
    
        22. Section 236.7 is revised to read as follows:
    
    
    Sec. 236.7  Appeals.
    
        Except as limited by section 236 of the Act, an appeal from a 
    decision of an Immigration Judge under this part may be taken by either 
    party pursuant to Sec. 3.38 of this chapter.
    
    PART 242--PROCEEDINGS TO DETERMINE DEPORTABILITY OF ALIENS IN THE 
    UNITED STATES: APPREHENSION, CUSTODY, HEARING, AND APPEAL
    
        23. The authority citation for part 242 is revised to read as 
    follows:
    
        Authority: 8 U.S.C. 1103, 1182, 1186a, 1251, 1252, 1252 note, 
    1252a, 1252b, 1254, 1362; 8 CFR part 2.
    
    
    Sec. 242.19  [Amended]
    
        24. In Sec. 242.19, the form number ``I-290A'' is removed each time 
    it appears and, in its place, the form number ``EOIR-26'' is added in 
    paragraphs (6) and (c).
        25. In Sec. 242.21, paragraph (a) is revised to read as follows:
    
    
    Sec. 242.21  Appeals.
    
        (a) Pursuant to part 3 of this chapter, an appeal shall lie from a 
    decision of an Immigration Judge to the Board, except that no appeal 
    shall lie from an order of deportation entered in absentia. The 
    procedures regarding the filing of a Notice of Appeal (Form EOIR-26), 
    fees, and briefs are set forth in Secs. 3.3, 3.31, and 3.38 of this 
    chapter. An appeal shall be filed within 30 calendar days after the 
    mailing of a written decision, the stating of an oral decision, or the 
    service of a summary decision. The filing date is defined as the date 
    of receipt of the Notice of Appeal by the Board of Immigration Appeals. 
    The reasons for the appeal shall be stated in the Notice of Appeal 
    (Form EOIR-26) in accordance with the provisions of Sec. 3.3(b) of this 
    chapter. Failure to do so may constitute a ground for dismissal of the 
    appeal by the Board pursuant to Sec. 3.1(d)(1-a) of this chapter.
    * * * * *
        26. Section 242.22 is amended by revising the first sentence and by 
    adding a sentence at the end of the section, to read as follows:
    
    
    Sec. 242.22  Reopening or reconsideration.
    
        Motions to reopen or reconsider are subject to the requirements and 
    limitations set forth in Sec. 3.23 of this chapter. * * *  The filing 
    of a motion to reopen pursuant to the provisions of Sec. 3.23(b)(4)(ii) 
    of this chapter shall stay the deportation of the alien pending the 
    disposition of the motion and the adjudication of any properly filed 
    administrative appeal.
    
    PART 246--RESCISSION OF ADJUSTMENT OF STATUS
    
        27. The authority citation for part 246 is revised to read as 
    follows:
    
        Authority: 8 U.S.C. 1103, 1254, 1255, 1256, 1259.
    
    
    [[Page 18910]]
    
    
        28. Section 246.7 is revised to read as follows:
    
    
    Sec. 246.7  Appeals.
    
        Pursuant to part 3 of this chapter, an appeal shall lie from a 
    decision of an Immigration Judge under this part to the Board of 
    Immigration Appeals except that no appeal shall lie from an order of 
    deportation entered in absentia. An appeal shall be taken within 30 
    days after the mailing of a written decision or the stating of an oral 
    decision. The reasons for the appeal shall be specifically identified 
    in the Notice of Appeal (Form EOIR 26); failure to do so may constitute 
    a ground for dismissal of the appeal by the Board.
    
        Dated: April 16, 1996.
    Janet Reno,
    Attorney General.
    [FR Doc. 96-10157 Filed 4-26-96; 8:45 am]
    BILLING CODE 4410-01-M
    
    

Document Information

Effective Date:
7/1/1996
Published:
04/29/1996
Department:
Justice Department
Entry Type:
Rule
Action:
Final rule.
Document Number:
96-10157
Dates:
July 1, 1996.
Pages:
18900-18910 (11 pages)
Docket Numbers:
EOIR No. 102F, AG Order No. 2020-96
RINs:
1125-AA01: Motions and Appeals in Immigration Proceedings
RIN Links:
https://www.federalregister.gov/regulations/1125-AA01/motions-and-appeals-in-immigration-proceedings
PDF File:
96-10157.pdf
CFR: (22)
8 CFR 103.7(b)(1)
8 CFR 1.1
8 CFR 3.1
8 CFR 3.2
8 CFR 3.3
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