[Federal Register Volume 60, Number 245 (Thursday, December 21, 1995)]
[Rules and Regulations]
[Pages 66062-66069]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-30701]
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DEPARTMENT OF JUSTICE
Immigration and Naturalization Service
8 CFR Parts 103, 242, 264, 274a, and 299
[INS No. 1414-91]
RIN 1115-AC39
Applicant Processing for Family Unity Benefits
AGENCY: Immigration and Naturalization Service, Justice.
ACTION: Final rule.
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SUMMARY: This final rule adopts with amendments the interim rule which
was published by the Immigration and Naturalization Service on February
25, 1992, implementing the provisions of the Family Unity Program
created by the Immigration Act of 1990 which provides a means by which
certain eligible aliens may obtain permanent resident status. This rule
also provides voluntary departure and work authorization for certain
eligible immigrants.
EFFECTIVE DATE: December 21, 1995.
FOR FURTHER INFORMATION CONTACT: Jack Hartsoch, Office of Service
Center Operations, Immigration and
[[Page 66063]]
Naturalization Service, 425 I Street NW., Room 3040, Washington, DC
20536, telephone (202) 514-3156.
SUPPLEMENTARY INFORMATION: On November 29, 1990, the Immigration Act of
1990, Pub. L. 101-649 (IMMACT 90), was enacted. Section 301 of IMMACT
90 provides for relief from deportation, and the granting of employment
authorization, to an eligible immigrant who is the spouse or unmarried
child of a legalized alien granted temporary or permanent resident
status pursuant to section 210 or 245A of the Immigration and
Nationality Act (the Act), or permanent resident status under section
202 of the Immigration Reform and Control Act of 1986 (Cuban/Haitian
Adjustment). This new program supersedes the administrative Family
Fairness policy which began in November 1987. That policy allowed
district directors to exercise the Attorney General's authority to
defer deportation proceedings of certain family members of legalized
aliens where compelling or humanitarian factors existed. On August 31,
1991, the Immigration and Naturalization Service (Service) published in
the Federal Register at 56 FR 42948 a proposed rule to implement the
provisions of section 301 of IMMACT 90, as it relates to the Family
Unity Program. Subsequently, on February 25, 1992, the Service
published in the Federal Register an interim rule at 57 FR 6457-6472
with request for comments. The interim rule as published on February
25, 1992 is adopted as final with amendments to 8 CFR parts 242 and
274a only. This final rule reflects the amendment to section 206 made
by the Immigration and Nationality Technical Corrections Act of 1994,
Public Law 103-416, Sec. 206, 108 Stat. 4305, 4311-12 (1994). This rule
also provides status under Sec. 242.5 for children born to mothers
granted status under the Family Unity Program who are authorized to
depart and reenter the United States.
Comments
The discussion that follows summarizes the public comments
submitted in response to the interim rule and explains the revisions
adopted in the final rule.
Residency Since May 5, 1988
The interim rule provided that a qualifying family member would be
eligible for Family Unity Program benefits if he or she had been in the
United States on May 5, 1988, and had resided in the United States
since that date. Several commenters asserted that no basis existed for
the continuous residency requirement. They did not believe that this
requirement had any statutory basis and that it was irrelevant whether
an alien actually continued to remain in the United States after May 5,
1988.
Section 301(f) of IMMACT 90 states as follows:
Nothing in this section shall be construed as authorizing an
alien to apply for admission to, or to be admitted to, the United
States in order to obtain benefits under this section.
The statute now requires an applicant to have entered the United
States before May 5, 1988, in the case of a relationship to a legalized
alien described in subsection (b)(2)(B) or (b)(2)(C) of section 301 of
IMMACT 90, or as of December 1, 1988, in the case of a relationship to
a legalized alien described in subsection (b)(2)(A), and also prohibits
the admission of an alien for the purposes of obtaining Family Unity
Program benefits. The Service interprets these two provisions as
requiring an applicant for Family Unity Program benefits to have
continuously resided in the United States since May 5, 1988, in the
case of a relationship to a legalized alien described in subsection
(b)(2)(B) or (b)(2)(C) of section 301 of IMMACT 90, or as of December
1, 1988, in the case of a relationship to a legalized alien described
in subsection (b)(2)(A). Further, the purpose of the Family Unity
Program is to prevent the separation of families, and to provide a
means by which qualifying family members already in the United States
in illegal status can eventually apply for permanent resident status.
The underlying administrative Family Fairness policy supports this
premise. The Service created the Family Fairness policy as a means of
precluding the separation of family members by deferring their
deportation. The purpose of the policy was to allow family members to
reside together in the United States until they could acquire legal
status. Whether relating to the Family Fairness policy or the Family
Unity Program, once a family member no longer resides with the family,
the reason for which the status was granted no longer exists.
Therefore, the Service will retain the continuous residency
requirement. In order to determine if the applicant has maintained a
continuous residence in the United States since May 5, 1988, in the
case of a relationship to a legalized alien described in subsection
(b)(2)(B) or (b)(2)(C) of section 301 of IMMACT 90, or as of December
1, 1988, in the case of a relationship to a legalized alien described
in subsection (b)(2)(A), the Service will consider the factors set
forth in Matter of Huang, 19 I&N 749, 753 (BIA 1988). In Huang, the
Board of Immigration Appeals enumerated several factors which should be
considered in determining whether an alien is returning from a
temporary visit abroad, thereby retaining his continuous residency in
the United States. These factors include the duration of the alien's
absence from the United States; the location of the alien's family
ties, the alien's property holdings, and job; and the intention of the
alien with respect to both the location of his actual home and the
anticipated length of his excursion. Matter of Quijencio, 15 I&N 95, 97
(BIA 1974); Matter of Castro, 14 I&N Dec. 492 (BIA 1973); Matter of
Montero, 14 I&N 399, 400 (BIA 1973).
The Service will not interpret ``continuous residence'' as
requiring ``continuous physical presence.'' A qualifying family member
who meets the requirements of the Family Unity Program will be granted
a 2-year period of voluntary departure. Voluntary departure is a form
of relief from deportation and is available only to persons already in
the United States.
Legalized Aliens/Applications After May 5, 1988
The interim rule provides that an alien who filed a legalization
application on or before May 5, 1988, will be treated as having been a
legalized alien as of May 5, 1988, for purposes of the Family Unity
Program.
Section 301(a) of IMMACT 90 states as follows:
The Attorney General shall provide that in the case of an alien
who is [a qualified immigrant and the spouse or unmarried child of a
legalized alien] as of May 5, 1988 * * *. [Emphasis added]
.Several commenters believe that the statute was never intended to
exclude family members of legalized aliens who filed after May 5, 1988,
from the Family Unity Program. They note that the filing deadline for
the Special Agricultural Worker Program did not occur until November
30, 1988. They believe that an alien who filed a timely application
after May 5, 1988, but before November 30, 1988, should also be treated
as a legalized alien for purposes of the Family Unity Program.
Congress has acted to resolve this issue. Section 206(a) of the
Immigration and Nationality Technical Corrections Act of 1994, Pub. L.
103-416, 108 Stat. at 4311, amends section 301 of IMMACT 90 to
distinguish the legalization program under section 245A of the Act and
the Cuban-Haitian adjustment provision in section 202 of
[[Page 66064]]
IRCA from the SAW program under section 210 of the Act. The Family
Unity Program eligibility date for relatives of aliens legalized under
the SAW program is now December 1, 1988, to correspond to the filing
deadline for that program. This amendment is reflected in this final
rule.
Children Born After May 5, 1988
The Service recognizes that the situation may arise where a child
may be born abroad to an alien granted voluntary departure status and
advance authorization to travel under the Family Unity Program.
Although there is no provision in the statute to provide status to the
child, it is also true that the intent of the statute was to enable
specific family members to reside together in the United States.
Therefore, although the child cannot qualify for benefits under the
Family Unity Program, the Service will provide for the granting of
voluntary departure under 8 CFR 242.5, to a child of a legalized alien
residing in the United States, who was born during an authorized
absence of the mother who is currently either a legalized alien or a
beneficiary of the Family Unity Program. This provision will also
include children born to aliens residing in the United States, who were
denied status in the Family Unity Program and granted voluntary
departure status under 8 CFR 242.5, where the other parent is a
legalized alien residing in the United States.
Waivers
Several commenters sought clarification regarding the availability
of existing waivers of deportability for applicants for the Family
Unity Program. The interim regulation reflects the statute in making
aliens who are deportable under certain grounds ineligible for the
Family Unity Program benefits. However, an alien who has been granted
any available waiver is not deportable and is not ineligible for the
Family Unity Program. The final rule is modified to clarify that
existing waivers are applicable to applicants for the Family Unity
Program.
Response to Notice of Intent To Deny
One commenter suggested that the Service should allow an applicant
for Family Unity Program benefits to submit a good faith request for an
extension of time to submit a response to a notice of intent to deny.
An applicant may request more time to respond to a notice to deny.
However, the Service's decision whether or not to grant the request is
discretionary. To ensure consistency with application procedures in
other Service programs, the provisions in this rule are consistent with
the general requirements and procedures for applications and petitions
in 8 CFR part 103.
Denied Cases
The Service initially proposed an administrative appeal procedure.
However, upon further review, this procedure was eliminated in the
interim rule. One commenter believed that the Service should not have
eliminated the administrative appeal process.
The Service set forth its reasons for eliminating the proposed
administrative appeal process in the Supplementary Information to the
interim rule published at 57 FR 6459-6460. The Service adheres to that
reasoning and will not adopt an administrative appeal procedure.
Issuance of Orders To Show Cause (OSC)
A commenter was concerned that the Service would issue an OSC (Form
I-221) while a Family Unity Program application is pending. The Service
will not issue an OSC during the pending adjudication of an Application
for Voluntary Departure Under the Family Unity Program (Form I-817),
unless the OSC is based on a paragraph in section 241(a) of the Act
which would render the applicant ineligible for the Family Unity
Program.
Several commenters believed that having applicants placed in
deportation proceedings as a result of a failure to meet basic
eligibility requirements, such as residence by the required date, is a
severely disproportionate consequence and a waste of Service resources,
as the denied applicants are likely to be eligible for a second
preference visa petition and will eventually be allowed to immigrate to
the United States. The commenters recommended that the Service continue
the policy under the administrative Family Fairness policy of not
issuing OSCs in denied cases, except in egregious cases such as a
serious criminal conviction.
However, as was discussed in the Supplementary Information to the
interim rule, the Service must fulfill its enforcement responsibility
under the Act. Therefore, this provision will remain as it is in the
interim rule.
Several commenters proposed that the issuance of an OSC be delayed
for 90 days after a second denial. They pointed out that the only way
an alien may appeal a denial of Family Unity Program benefits would be
to file a complaint against the Service in district court alleging
abuse of discretion. Further, the commenters allege that the Service is
making it difficult for the alien to bring these charges when it will
only delay issuance of the OSC for the first denial. The commenters
conclude that, in order to balance the removal of the proposed
administrative appeals process, the Service should allow applicants
more time after a second denial to seek judicial review.
The Service believes that granting a 90-day grace period after
every denial before issuing an OSC might simply encourage a person to
file repeated applications with the sole intent to protract the
adjudication process and delay the issuance of an OSC. The Service
believes that ample safeguards exist in the current procedure to enable
an applicant to perfect an application and/or appeal a denial of
benefits. Denied applicants will have at least 90 days from the first
denial to refile a second application before the Service will issue an
OSC. If the application is denied again, the applicant may still seek
judicial review before the district court. Therefore, the final rule
will not be amended to allow for a delayed issuance of an OSC after a
second denial.
Release From Detention/Administrative Closure/Automatic Stay of
Deportation
Several commenters suggested that the regulations provide that a
demonstration of prima facie eligibility for Family Unity Program
benefits should result in:
(1) The alien's release from detention on his or her own
recognizance;
(2) Administrative closure of the deportation proceedings, provided
a final administrative order of deportation has not been issued; and
(3) An automatic stay of deportation for a person with a final
deportation order.
These commenters asserted that this would promote an efficient use
of the budgets of the Service and the Executive Office for Immigration
Review (EOIR) to be faithful to Congress' intent and would promote
uniformity in national enforcement practice.
The Service may currently consider the requests of release from
detention and stays of deportation on a case-by-case basis for Family
Unity Program applicants under sections 242 and 243 of the Act. The
Service is without authority to consider a request for administrative
closure of a deportation proceeding.
Concurrent Jurisdiction of EOIR
Several commenters believe it would be helpful to have a provision
stating that EOIR has concurrent jurisdiction with the Service in cases
where an
[[Page 66065]]
applicant has been denied Family Unity Program benefits and is in
deportation proceedings. The commenters suggest that the reference to
judicial review in the interim rule includes the possibility of seeking
review before an immigration judge.
The statute does not provide for administrative review of the
Service's denial of Family Unity Program benefits. If an alien's
application for Family Unity Program benefits is denied, he or she may
still request relief from deportation in the form of voluntary
departure in a deportation hearing before an immigration judge. Such a
request would be made pursuant to section 244 of the Act and would be a
separate determination from that made by the Service pursuant to
section 301 of the Immigration Act of 1990. An immigration judge's
denial of voluntary departure in deportation proceedings could then be
appealed to the Board of Immigration Appeals and the Federal circuit
court of appeals.
Employment Authorization
Several commenters proposed that the Service apply the same
practice to the Family Unity Program as was applied to the Legalization
Program and the administrative Family Fairness policy regarding
employment authorization, for example, granting interim employment
authorization for the time period between the granting of the
application and the issuance of the employment authorization document
(EAD) at a local Service office. Several commenters suggested that such
interim work authorization should be stamped directly onto the receipt
notice, with the period of validity to coincide with the EAD
appointment date plus 90 days.
The Service's position regarding the issue of providing interim
work authorization to Family Unity Program applicants remains
unchanged. The Service has determined that a uniform procedure for
issuance of EADs is necessary. Further, interim work authorization is
less secure and presents enforcement problems. For the above reasons
and those set forth in the interim rule, the Service will not authorize
interim employment for the period between the granting of an
application for Family Unity Program benefits and the issuance of an
EAD. Instead, the applicant may apply on Form I-765 for issuance of an
EAD, concurrently with Form I-817. To file Form I-765 at a Service
Center, the applicant must include two (2) ADIT-style photographs.
Identify Document for Employment Authorization
The interim rule, at 8 CFR 242.6(e)(5), contained the language,
``issued by legitimate agency of the United States or a foreign
government,'' when referring to an identity document the alien must
present at the time of filing for an application for an EAD. Some
commenters expressed concern that the language could be construed too
narrowly to preclude State or local government-issued identification
documents (whether domestic or foreign), and recommended that the final
language of the rule clarify that identification documents will be
accepted if they have been issued by smaller scale government sources,
provided they are legitimate.
The intent of this requirement is to ensure that a person appearing
at the local district office to obtain an EAD establish that he or she
is the person granted Family Unity Program benefits before being given
the EAD. The final rule clarifies this point.
Reference on Forms I-688B and I-551
One commenter requested that the Employment Authorization Card,
Form I-688B, and the Alien Registration Receipt Card, Form I-551,
include a reference to section 301 of IMMACT 90 to assist in
identifying participants in this program.
The Form I-688B does have a reference to the Family Unity Program.
Section 274a.12(a)(13) is used exclusively for the Family Unity
Program. The Form I-551 reflects the section of law under which the
alien immigrated but does not directly indicate the alien's previous
participation in the Family Unity Program.
Continuing Relationship Requirement
One commenter requested a clarification regarding the continuing
relationship requirement, specifically the definitions of ``child'' and
``spouse.''
The definition of ``child'' is the same as is defined in section
101(b)(1) of the Act, with the exception that the alien will not lose
eligibility for the Family Unity Program by virtue of having attained
the age of 21 after May 5, 1988, in the case of a relationship to a
legalized alien described in subsection (b)(2)(B) or (b)(2)(C) of
section 301 IMMACT 90, or as of December 1, 1988, in the case of a
relationship to a legalized alien described in subsection (b)(2)(A).
The definition of ``spouse'' includes the term as described in section
101(a)(35) of the Act. The term ``spouse'' is also described in
decisions relating to the petitioning process for sections 201(b) and
203(a)(2) of the Act. There is no special definition of spouse
associated with this rule.
In the interim rule, at Sec. 242.6(c)(1)(ii), an eligible immigrant
is required to also be eligible for family-sponsored second preference
immigrant status under section 203(a)(2) of the Act based on the same
relationship. One commenter believed that the ``based on the same
relationship'' phrase should not be included in the promulgation of
final regulations and that marital status on May 5, 1988, and not any
time thereafter, be the relevant determination of eligibility. The
commenter concluded that the disqualification is inconsistent with the
purposes of the Family Unity Program.
Pursuant to section 301 paragraphs (a) and (b)(1) of the
Immigration Act of 1990, the required relationship to a legalized alien
must have existed on May 5, 1988, in the case of a relationship to a
legalized alien described in subsection (b)(2)(B) or (b)(2)(C) of
section 301 IMMACT 90, or as of December 1, 1988, in the case of a
relationship to a legalized alien described in subsection (b)(2)(A).
The issue is whether that relationship must continue in order for
eligibility to continue, or whether the alien granted benefits under
the Family Unity Program should be allowed to retain those benefits
even if the required relationship changes.
The purpose of the Family Unity Program is to provide a transition
for specific family members of legalized aliens to family-sponsored
second preference immigrant status. If benefits under the Family Unity
Program were retained even after a required relationship ended by
marriage, divorce, or death, and the person became ineligible for
family-sponsored second preference classification, the alien could
potentially remain in the Family Unity Program without a means to
become a permanent resident. This would go far beyond Congress' intent
for the program and would be inconsistent with section 205 of the Act.
In essence, this regulation applies the same rules to the Family
Unity Program which are applicable to persons with approved family-
sponsored immigrant petitions in similar circumstances. If a marriage
to a petitioner ends, or the unmarried son or daughter of a lawful
permanent resident petitioner marries, approval of an immigrant
petition based upon that relationship is automatically revoked, and
that petition may no longer be used as a basis for immigration.
[[Page 66066]]
Therefore, if the legalized alien's child marries, or if the
legalized alien's marriage to the spouse ends through divorce or death,
neither the child nor the spouse can retain benefits under the Family
Unity Program because of the termination of the relationship by which
he or she qualified.
Petition/Extension Application
In order to obtain an extension of voluntary departure, section
242.6(e)(7) of the interim rule requires that a petition for family-
sponsored immigrant status be filed on behalf of the applicant during
the initial period of voluntary departure. Several commenters asserted
that this requirement is unnecessary.
The Service recognizes that the statute does not specifically
require that an immigrant petition be filed in order to obtain an
extension of voluntary departure; however, since the intent of the
program is to provide a bridge to permanent residence, it is reasonable
to require the family member to at least file the second-preference
petition. Further, this regulation will assist the Service in moving
toward closure of the need for the Family Unity Program, and provide
lawful permanent resident status for the participants of the Family
Unity Program. The requirement continued from the interim rule is being
modified so as to relate only to those applicants whose petitioning
family member is a lawful permanent resident and thereby eligible to
file the petition.
Extension/Demonstration of Continued Eligibility
Several other commenters suggested that the rule be modified to
require a person seeking Family Unity Program benefits to demonstrate
continued eligibility only from the date of execution of the prior
Family Unity Program application. The commenters conclude that this
would streamline the extension process and save time and resources for
both the Service and the applicants. Several commenters also suggested
that such simplification should result in a reduced fee.
The final rule will be amended to reflect that the applicant for an
extension will not be required to submit evidence already submitted.
However, the applicant will be required to submit evidence of
continuing eligibility since the first application for the Family Unity
Program was submitted. The applicant will also be required to notify
the Service of any changes relating to the first application.
Two commenters suggested that an applicant for voluntary departure
under the Family Unity Program only be required to submit a simple
half-page extension form or a Form I-817 by itself, along with a
reduced fee. Since activities such as mail distribution, fee
receipting, data entry, records verification, adjudication, and
notification are associated with the processing of any form, the fee
will remain the same.
The Service is committed to charging a fee that accurately reflects
costs. The Service will continue to use the form created for this
program, Form I-817, Application for Voluntary Departure Under the
Family Unity Program. The fee is consistent with 31 U.S.C. 9701 and the
guidelines of the Office of Management and Budget in OMB Circular A-25,
for an application for an initial grant of family unity benefits and
for an application to extend family unity benefits.
Condition/Status
In the interim rule, an alien who is granted advance authorization
to travel outside the United States and who returns to the United
States in accordance with such authorization, and who is found not to
be excludable under section 301(a)(1) of IMMACT 90, shall be inspected
and admitted in the same immigration condition the alien had at the
time of departure for the remainder of the 2-year voluntary departure
previously authorized under the Family Unity Program. One commenter was
troubled about the use of the term ``condition'' instead of ``status''
for persons who depart and return on advance parole.
To avoid an appearance that the Service is not following the
statute, the word ``status'' will be used in the final rule. If the
person was in status at the time of departure, the alien will be placed
in status upon return to the United States. Conversely, if the person
was out of status upon departure, the alien will be out of status upon
his or her return. Thus, existing sections of the Act, such as section
245, are unaffected by section 301 of IMMACT 90. If an alien was
ineligible to adjust status upon departure, the alien will be
ineligible to adjust status upon return.
Visa Processing
One commenter requested clarification regarding the processing of
immigrant petitions. Section 301 of IMMACT 90 is not affected by
procedures relating to immigrant petitions.
Confidentiality
One commenter suggested that the Service adopt a relation providing
for confidentiality for the Family Unity Program application,
prohibiting the use of information gathered for the Family Unity
program in establishing deportability.
The Immigration Reform and Control Act required confidentiality in
clear statutory language. No such provision was made in the enabling
statute for the Family Unity Program.
Regulatory Flexibility Act
The Commissioner of the Immigration and Naturalization Service, in
accordance with the Regulatory Flexibility Act (5 U.S.C 605(b)), has
reviewed this regulation and, by approving it, certifies that the rule
will not have significant economic impact on a substantial number of
small entities because the rule relates solely to individual
immigration benefits.
Executive Order 12866
This rule is not considered by the Department of Justice,
Immigration and Naturalization Service, to be a ``significant
regulatory action'' under Executive Order 12866, Sec. 3(f), Regulatory
Planning and Review, and the Office of Management and Budget has waived
its review process under section 6(a)(3)(A).
Executive Order 12612
The regulations adopted herein 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 Executive Order 12612, it is determined that this rule
does not have sufficient Federalism implications to warrant the
preparation of a Federalism Assessment.
Executive Order 12606
The Commissioner of the Immigration and Naturalization Service
certifies that she has assessed this rule in light of the criteria in
Executive Order 12606 and has determined that this regulation will
enhance family well-being by providing for family unity of eligible
persons.
The information collection requirements contained in this rule have
been cleared by the Office of Management and Budget under the
provisions of the Paperwork Reduction Act. Clearance numbers are
contained in 8 CFR 299.5, Display of Control Numbers.
List of Subjects
8 CFR Part 103
Administrative practice and procedure, Authority delegations
[Government agencies], Freedom of Information, Privacy, Reporting and
[[Page 66067]]
recordkeeping requirements, Surety bonds.
8 CFR Part 242
Administrative practice and procedure, Aliens, Crime.
8 CFR Part 264
Aliens, Reporting and recordkeeping requirements.
8 CFR Part 274a
Administrative practice and procedure, Aliens, Employment
penalties, Report and recordkeeping requirements.
8 CFR Part 299
Immigration, Reporting and recordkeeping requirements.
Accordingly, the interim rule amending 8 CFR parts 103, 242, 264,
274a and 299 which was published at 57 FR 6457-6462 on February 25,
1992, is adopted as a final rule with the following changes:
PART 242--PROCEEDINGS TO DETERMINE DEPORTABILITY OF ALIENS IN THE
UNITED STATES: APPREHENSION, CUSTODY, HEARING, AND APPEAL
1. The authority citation for part 242 continues to read as
follows:
Authority: 8 U.S.C. 1103, 1182, 1186a, 1251, 1252, 1252 note,
1252b, 1254, 1362; 8 CFR part 2.
2. In Sec. 242.5, paragraph (a) is amended by:
a. Removing ``or'' before paragraph (a)(2)(viii);
b. Removing the ``.'' at the end of the paragraph and replacing it
with a ``; or'';
c. Adding paragraph (a)(2)(ix); and
d. Revising paragraph (a)(3) to read as follows:
Sec. 242.5 Voluntary departure prior to commencement of hearing.
* * * * *
(a) * * *
(2) * * *
(ix) who is the child of a legalized alien currently residing in
the United States, born during an authorized absence from the United
States of the mother who is:
(A) A legalized alien; or
(B) An alien currently residing in the United States under
voluntary departure pursuant to the Family Unity Program.
(3) Periods of time/employment. (i) Except for paragraphs (a)(2)
(v) through (ix) of this section, any grant of voluntary departure
shall contain a time limitation of usually not more than 30 days, and
an extension of the original voluntary departure time shall not be
authorized except under meritorious circumstances, as determined on a
case-by-case basis. Upon failure to depart, deportation proceedings
will be initiated. As an exception to the 30-day voluntary departure
period, an eligible alien under:
(A) Paragraph (a)(2)(v) of this section may be granted voluntary
departure in increments of 1 year conditioned upon the F-1 or J-1 alien
maintaining a full course of study at an approved institution of
learning, or upon abiding by the terms and conditions of the exchange
program within the limitations imposed by 22 CFR 514.23; or
(B) Paragraphs (a)(2)(vi) (A), (B), and (C) of this section may be
granted voluntary departure until the American Consul issues an
immigrant visa and, at the discretion of the district director,
issuance may be in increments of 30 days, conditioned upon continuing
availability of an immigrant visa as shown in the latest Visa Office
Bulletin and upon the alien's diligent pursuit of efforts to obtain the
visa; or
(C) Paragraphs (a)(2)(vi) (D) and (E) of this section may be
granted voluntary departure, conditioned upon the continued validity of
the approved third- or sixth-preference petition, as appropriate, and
the alien's retention of the status established in the petition for an
indefinite period until an immigrant visa is available; or
(D) Paragraphs (a)(2) (vii) and (viii) of this section may be
granted voluntary departure in increments of time, not to exceed 1
year, as determined by the district director to be appropriate in the
case; or
(E) Paragraph (a)(2)(ix) of this section may be granted voluntary
departure in increments of time, not to exceed 2 years.
(ii) An alien eligible for voluntary departure in paragraphs (a)(2)
(v) through (viii) of this section may apply for employment
authorization under the appropriate citation in Sec. 274a.12 of this
chapter.
* * * * *
3. Section 242.6 is revised to read as follows:
Sec. 242.6 Family Unity Program.
(a) General. Except as otherwise specifically provided in paragraph
(b) of this section, the definitions contained in Title 8 of the Code
of Federal Regulations shall apply to the administration of this
section.
(b) Definitions. As used in this section:
Eligible immigrant means a qualified immigrant who is the spouse or
unmarried child of a legalized alien.
Legalized alien means an alien who:
(i) Is a temporary or permanent resident under section 210 or 245A
of the Act; or
(ii) Is a permanent resident under section 202 of the Immigration
Reform and Control Act of 1986 (Cuban/Haitian Adjustment).
(c) Eligibility--(1) General. An alien who is not a lawful
permanent resident is eligible to apply for benefits under the Family
Unity Program if he or she establishes:
(i) That he or she entered the United States before May 5, 1988 (in
the case of a relationship to a legalized alien described in subsection
(b)(2)(B) or (b)(2)(C) of section 301 of IMMACT 90)), or as of December
1, 1988 (in the case of a relationship to a legalized alien described
in subsection (b)(2)(A) of section 301 of IMMACT 90), and has been
continuously residing in the United States since that date; and
(ii) That on May 5, 1988 (in the case of a relationship to a
legalized alien described in subsection (b)(2)(B) or (b)(2)(C) of
section 301 of IMMACT 90), or as of December 1, 1988 (in the case of a
relationship to a legalized alien described in subsection (b)(2)(A) of
section 301 of IMMACT 90), he or she was the spouse of unmarried child
of a legalized alien, and that he or she has been eligible continuously
since that time for family-sponsored second preference immigrant status
under section 203(a)(2) of the Act based on the same relationship.
(2) Legalization application pending as of May 5, 1988 or December
1, 1988. An alien whose legalization application was filed on or before
May 5, 1988 (in the case of a relationship to a legalized alien
described in subsection (b)(2)(B) or (b)(2)(C) of section 301 of IMMACT
90), or as of December 1, 1988 (in the case of a relationship to a
legalized alien described in subsection (b)(2)(A) of section 301 of
IMMACT 90), but not approved until after that date will be treated as
having been a legalized alien as of May 5, 1988 (in the case of a
relationship to a legalized alien described in subsection (b)(2)(B) or
(b)(2)(C) of section 301 of IMMACT 90), or as of December 1, 1988 (in
the case of a relationship to a legalized alien described in subsection
(b)(2)(A) of section 301 of IMMACT 90), for purposes of the Family
Unity Program.
(d) Ineligible aliens. The following categories of aliens are
ineligible for benefits under the Family Unity Program:
(1) An alien who is deportable under any paragraph in section
241(a) of the Act, except paragraphs (1)(A), (1)(B), (1)(C), and
(3)(A); provided that an alien
[[Page 66068]]
who is deportable under paragraph (1)(A) of such Act is also ineligible
for benefits under the Family Unity Program if deportability is based
upon an exclusion ground described in section 212(a) (2) or (3) of the
Act;
(2) An alien who has been convicted of a felony or three or more
misdemeanors in the United States; or
(3) An alien described in section 243(h)(2) of the Act.
(e) Filing--(1) General. An application for voluntary departure
under the Family Unity Program must be filed at the Service Center
having jurisdiction over the alien's place of residence. A Form I-817
(Application for Voluntary Departure under the Family Unity Program)
must be filed with the correct fee required in Sec. 103.7(b)(1) of this
chapter and the required supporting documentation. A separate
application with appropriate fee and documentation must be filed for
each person claiming eligibility.
(2) Decision. The Service Center director has sole jurisdiction to
adjudicate an application for benefits under the Family Unity Program.
The director will provide the applicant with specific reasons for any
decision to deny an application. Denial of an application may not be
appealed. An applicant who believes that the grounds for denial have
been overcome may submit another application with the appropriate fee
and documentation.
(3) Referral of denied cases for consideration of issuance of Order
to Show Cause. If an application is denied, the case will be referred
to the district director with jurisdiction over the alien's place of
residence for consideration of whether to issue an Order to Show Cause
(OSC). After an initial denial, an applicant's case will not be
referred for issuance of an OSC until 90 days from the date of the
initial denial, to allow the alien the opportunity to file a new Form
I-817 application in order to attempt to overcome the basis of the
denial. However, if the applicant is found not to be eligible for
benefits under paragraph (d)(2) of this section, the Service reserves
the right to issue an Order to Show Cause at any time after the initial
denial.
(4) Voluntary departure under Sec. 242.5 and eligibility for
employment under Sec. 274a.12(c)(12). Children of legalized aliens
residing in the United States, who were born during an authorized
absence from the United States of mothers who are currently residing in
the United States under voluntary departure pursuant to the Family
Unity Program may be granted voluntary departure under
Sec. 242.5(a)(2)(ix) for a period of 2 years.
(5) Duration of voluntary departure under Sec. 242.6. An alien
whose application for benefits under the Family Unity Program is
approved will receive a 2-year period of voluntary departure. The 2-
year period will begin on the date the Services approves the
application.
(6) Employment authorization. An alien granted benefits under the
Family Unity Program is authorized to be employed in the United States
and may apply for an employment authorization document on Form I-765
(Application for Employment Authorization). The application may be
filed concurrently with Form I-817. The application must be accompanied
by the correct fee required by Sec. 103.7(b)(1) of this chapter. The
validity period of the employment authorization will coincide with the
period of voluntary departure.
(7) Travel outside the United States. An alien granted Family Unity
Program benefits who intends to travel outside the United States
temporarily must apply for advance authorization using Form I-131
(Application for Travel Document). The authority to grant an
application for advance authorization for an alien granted Family Unity
Program benefits rests solely with the district director. An alien who
is granted advance authorization and returns to the United States in
accordance with such authorization, and who is found not to be
excludable under section 212(a) (2) or (3) of the Act, shall be
inspected and admitted in the same immigration status the alien had at
the time of departure, and provided the remainder of the 2-year
voluntary departure previously granted under the Family Unity Program.
(8) Extension of voluntary departure. An application for an
extension of voluntary departure under the Family Unity Program must be
filed by the alien on Form I-817 along with the correct fee required in
Sec. 103.7(b)(1) of this chapter and the required supporting
documentation. The submission of a copy of the previous approval notice
will assist in shortening the processing time. An extension may be
granted if the alien continues to be eligible for benefits under the
Family Unity Program. However, an extension may not be approved if the
legalized alien is a lawful permanent resident, and a petition for
family-sponsored immigrant status has not been filed in behalf of the
applicant. In such case the Service will notify the alien of the reason
for the denial and afford him or her the opportunity to file another
Form I-817 once the petition, Form I-130, has been filed in behalf of
him or her. No charging document will be issued for a period of 90
days.
(9) Supporting documentation for extension application. Supporting
documentation need not include documentation provided with the previous
application(s). The extension application need only include changes to
previous applications and evidence of continuing eligibility since the
date of the prior approval.
(f) Eligibility for Federal financial assistance programs. An alien
granted Family Unity Program benefits based on a relationship to a
legalized alien as defined in paragraph (b) of this section is
ineligible for public welfare assistance in the same manner and for the
same period as the legalized alien is ineligible for such assistance
under sections 245A(h) or 210(f) of the Act, respectively.
(g) Termination of Family Unity Program benefits.
(1) Grounds for termination. The Service may terminate benefits
under the Family Unity Program whenever the necessity for the
termination comes to the attention of the Service. Such grounds will
exist in situations including, but not limited to, those in which:
(i) A determination is made that Family Unity Program benefits were
acquired as the result of fraud or willful misrepresentation of a
material fact;
(ii) The beneficiary commits an act or acts which render him or her
inadmissible as an immigrant or ineligible for benefits under the
Family Unity Program;
(iii) The legalized alien upon whose status benefits under the
Family Unity Program were based loses his or her legalized status;
(iv) The beneficiary is the subject of a final order of exclusion
or deportation issued subsequent to the grant of benefits on any ground
of deportability or excludability that would have rendered the alien
ineligible for benefits under Sec. 242.6(d)(1) of this chapter,
regardless of whether the facts giving rise to such ground occurred
before or after the benefits were granted; or
(v) A qualifying relationship to a legalized alien no longer
exists.
(2) Notice procedure. Notice of intent to terminate and of the
grounds thereof shall be served pursuant to the provisions of
Sec. 103.5a of this chapter. The alien shall be given 30 days to
respond to the notice and may submit to the Service additional evidence
in rebuttal. Any final decision of termination shall also be served
pursuant to the provisions of Sec. 103.5a of the chapter. Nothing in
this section
[[Page 66069]]
shall preclude the Service from commencing exclusion or deportation
proceedings prior to termination of Family Unity Program benefits.
(3) Effect of termination. Termination of benefits under the Family
Unity Program, other than as a result of a final order of deportation
or exclusion, shall render the alien amendable to exclusion or
deportation proceedings under sections 236 or 242 of the Act, as
appropriate.
PART 274a--CONTROL OF EMPLOYMENT OF ALIENS
4. The authority citation for part 274a continues to read as
follows:
Authority: 8 U.S.C. 1101, 1103, 1324a; 8 CFR part 2.
5. Section 274a.12 is amended by revising paragraph (c)(12) to read
as follows:
Sec. 274a.12 Classes of aliens authorized to accept employment.
* * * * *
(c) * * *
(12) A deportable alien granted voluntary departure, either prior
to or after a hearing, for reasons set forth in Sec. 242.5(a)(2) (v),
(vi), (viii), or (ix) of this chapter, may be granted permission to be
employed for that period of time prior to the date set for voluntary
departure including any extension granted beyond such date, if the
alien establishes an economic need to work. Factors which may be
considered in adjudicating the application for employment authorization
of such an alien granted voluntary departure include, but are not
limited to, the following:
(i) The length of voluntary departure granted;
(ii) The existence of a dependent spouse and/or children in the
United States who rely on the alien for support;
(iii) Whether there is a reasonable chance that legal status may
ensure in the near future; and
(iv) Whether there is a reasonable basis for consideration of
discretionary relief.
* * * * *
Dated: December 13, 1995.
Doris Meissner,
Commissioner.
[FR Doc. 95-30701 Filed 12-20-95; 8:45 am]
BILLING CODE 4410-10-M
