Policy Manual
The USCIS Policy Manual is the agency’s centralized online repository for USCIS’ immigration policies. The USCIS Policy Manual will ultimately replace the Adjudicator’s Field Manual (AFM), the USCIS Immigration Policy Memoranda site, and other policy repositories.
The USCIS Policy Manual is the agency’s centralized online repository for USCIS’ immigration policies. The Policy Manual is replacing the Adjudicator’s Field Manual (AFM), the USCIS Immigration Policy Memoranda site, and other USCIS policy repositories. The Policy Manual contains separate volumes pertaining to different areas of immigration benefits administered by the agency, such as citizenship and naturalization, adjustment of status, and nonimmigrants. The content is organized into different volumes, parts, and chapters.
The Policy Manual provides transparency of immigration policies and furthers consistency, quality, and efficiency consistent with the USCIS mission. The Policy Manual provides all the latest policy updates; an expanded table of contents; keyword search function; and links to the Immigration and Nationality Act and Code of Federal Regulations, as well as public use forms. The Policy Manual contains tables and charts to facilitate understanding of complex topics. The Policy Manual also contains all historical policy updates.
The Policy Manual contains the official policies of USCIS and assists immigration officers in rendering decisions. The Policy Manual is to be followed by all USCIS officers in the performance of their duties but it does not remove their discretion in making adjudicatory decisions. The Policy Manual does not create any substantive or procedural right or benefit that is legally enforceable by any party against the United States or its agencies or officers or any other person.
USCIS is retiring its Adjudicator's Field Manual (AFM), a collection of our immigration policies and procedures. We are working to update and incorporate all AFM content into the USCIS Policy Manual. Until then, we have moved any remaining AFM content in PDF format to its corresponding Policy Manual Part. To the extent that a provision in the Policy Manual conflicts with remaining AFM content or Policy Memoranda, the updated information in the Policy Manual prevails. If you have questions or concerns about any discrepancies among these resources, contact PolicyFeedback@uscis.dhs.gov.
To find remaining AFM content, see the crosswalk (PDF, 332.97 KB) between the AFM and the Policy Manual.
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Updates
Table of Contents
- Part A - Public Services
- Chapter 1 - Purpose and Background
- Chapter 2 - Web-Based Information
- Chapter 3 - Forms of Assistance
- Chapter 4 - Service Request Management Tool
- Chapter 5 - Requests to Expedite Applications or Petitions
- Chapter 6 - Disability Accommodation Requests
- Chapter 7 - Privacy and Confidentiality
- Chapter 8 - Conduct in USCIS Facilities
- Chapter 9 - Feedback, Complaints, and Reporting Misconduct
- Part C - Biometrics Collection and Security Checks
- Chapter 1 - Purpose and Background
- Chapter 2 - Biometrics Collection
- Chapter 3 - Security Checks [Reserved]
- Part E - Adjudications
- Chapter 1 - Purpose and Background
- Chapter 2 - Record of Proceeding
- Chapter 3 - Jurisdiction
- Chapter 4 - Burden and Standards of Proof
- Chapter 5 - Verification of Identifying Information
- Chapter 6 - Evidence
- Chapter 7 - Interviews [Reserved]
- Chapter 8 - Discretionary Analysis
- Chapter 9 - Rendering a Decision
- Chapter 10 - Post-Decision Actions
- Part G - Notice to Appear
- Part A - Nonimmigrant Policies and Procedures
- Chapter 1 - Purpose and Background
- Chapter 2 - General Requirements [Reserved]
- Chapter 3 - Maintaining Status [Reserved]
- Chapter 4 - Extension of Stay, Change of Status, and Extension of Petition Validity
- Part C - Visitors for Business or Tourism (B)
- Part D - Exchange Visitors (J)
- Chapter 1 - Purpose and Background
- Chapter 2 - J Exchange Visitor Eligibility
- Chapter 3 - Terms and Conditions of J Exchange Visitor Status
- Chapter 4 - Waiver of the Foreign Residence Requirement
- Chapter 5 - Change of Status, Extensions of Stay, Program Transfers, and Reinstatement
- Chapter 6 - Family Members of J-1 Exchange Visitor
- Part F - Students (F, M)
- Chapter 1 - Purpose and Background
- Chapter 2 - Reserved
- Chapter 3 - Reserved
- Chapter 4 - Reserved
- Chapter 5 - Reserved
- Chapter 6 - Employment
- Chapter 7 - Reserved
- Chapter 8 - Change of Status
- Part I - Temporary Agricultural and Nonagricultural Workers (H-2)
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility for Temporary Agricultural Worker (H-2A) Classification [Reserved]
- Chapter 3 - Documentation and Evidence for Temporary Agricultural Worker (H-2A) Classification [Reserved]
- Chapter 4 - Adjudication of Temporary Agricultural Worker (H-2A) Petitions [Reserved]
- Chapter 5 - Post-Adjudication Issues related to Temporary Agricultural Worker (H-2A) Petitions [Reserved]
- Chapter 6 - Temporary Agricultural Worker (H-2A) Petitions Requiring Special Handling [Reserved]
- Chapter 7 - Eligibility for Temporary Nonagricultural Worker (H-2B) Classification [Reserved]
- Chapter 8 - Documentation and Evidence for Temporary Nonagricultural Worker (H-2B) Classification [Reserved]
- Chapter 9 - Adjudication of Temporary Nonagricultural Worker (H-2B) Petitions [Reserved]
- Chapter 10 - Post-Adjudication Issues related to Temporary Nonagricultural Worker (H-2B) Petitions [Reserved]
- Chapter 11 - Temporary Nonagricultural Worker (H-2B) Petitions Requiring Special Handling
- Part J - Trainees (H-3)
- Chapter 1 - Purpose and Background
- Chapter 2 - H-3 Categories
- Chapter 3 - Trainee Program Requirements
- Chapter 4 - Special Education Exchange Visitor Program Requirements
- Chapter 5 - Family Members of H-3 Beneficiaries
- Chapter 6 - Adjudication
- Chapter 7 - Admissions, Extensions of Stay, and Change of Status
- Part L - Intracompany Transferees (L)
- Chapter 1 - Purpose and Background
- Chapter 2 - General Eligibility
- Chapter 3 - Managers and Executives (L-1A)
- Chapter 4 - Specialized Knowledge Beneficiaries (L-1B)
- Chapter 5 - Ownership and Control
- Chapter 6 - Key Concepts
- Chapter 7 - Filing
- Chapter 8 - Documentation and Evidence
- Chapter 9 - Adjudication
- Chapter 10 - Period of Stay
- Part M - Nonimmigrants of Extraordinary Ability or Achievement (O)
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility for O Classification
- Chapter 3 - Petitioners
- Chapter 4 - O-1 Beneficiaries
- Chapter 5 - O-2 Beneficiaries
- Chapter 6 - Family Members
- Chapter 7 - Documentation and Evidence
- Chapter 8 - Adjudication
- Chapter 9 - Admission, Extension of Stay, Change of Status, and Change of Employer
- Part A - Protection and Parole Policies and Procedures
- Part B - Victims of Trafficking
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility Requirements
- Chapter 3 - Documentation and Evidence for Principal Applicants
- Chapter 4 - Family Members
- Chapter 5 - Documentation and Evidence for Family Members
- Chapter 6 - Bona Fide Determinations [Reserved]
- Chapter 7 - Adjudication
- Chapter 8 - Annual Cap and Waiting List
- Chapter 9 - Applicants in Removal Proceedings
- Chapter 10 - Duration and Extensions of Status
- Chapter 11 - Federal Benefits and Work Authorization
- Chapter 12 - Travel
- Chapter 13 - Revocation of Status
- Chapter 14 - Confidentiality Protections and Prohibitions Against Disclosure
- Part C - Victims of Crimes
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility Requirements for U Nonimmigrant Status
- Chapter 3 - Documentation and Evidence [Reserved]
- Chapter 4 - Adjudication
- Chapter 5 - Bona Fide Determination Process
- Chapter 6 - Waiting List
- Chapter 7 - Final Adjudication
- Chapter 8 - Post-Adjudicative Matters [Reserved]
- Part K - Statelessness
- Part C - Child Eligibility Determinations (Orphan)
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility
- Chapter 3 - Identity and Age
- Chapter 4 - Eligibility Requirements Specific to Orphans
- Chapter 5 - Qualifying Adoptive or Custodial Relationship
- Chapter 6 - Additional Requirements
- Chapter 7 - Documentation and Evidence
- Chapter 8 - Adjudication
- Chapter 9 - Pre-Adoption Immigration Review Programs
- Part B - Family-Based Immigrants
- Chapter 1 - Purpose and Background
- Chapter 2 - Principles Common to Family-Based Petitions [Reserved]
- Chapter 3 - Filing
- Chapter 4 - Documentation and Evidence for Family-Based Petitions [Reserved]
- Chapter 5 - Adjudication of Family-Based Petitions [Reserved]
- Chapter 6 - Post-Adjudication of Family-Based Petitions [Reserved]
- Chapter 7 - Spouses [Reserved]
- Chapter 8 - Children, Sons, and Daughters
- Chapter 9 - Parents of U.S. Citizens [Reserved]
- Chapter 10 - Siblings of U.S. Citizens [Reserved]
- Part E - Employment-Based Immigration
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility Requirements
- Chapter 3 - Successor-in-Interest in Permanent Labor Certification Cases
- Chapter 4 - Ability to Pay
- Chapter 5 - Reserved
- Chapter 6 - Permanent Labor Certification
- Chapter 7 - Schedule A Designation Petitions
- Chapter 8 - Documentation and Evidence
- Chapter 9 - Evaluation of Education Credentials
- Chapter 10 - Decision and Post-Adjudication
- Part H - Designated and Special Immigrants
- Chapter 1 - Purpose and Background
- Chapter 2 - Religious Workers
- Chapter 3 - Panama Canal Zone Employees
- Chapter 4 - Certain Physicians [Reserved]
- Chapter 5 - Certain G-4 or NATO-6 Employees and their Family Members [Reserved]
- Chapter 6 - Members of the U.S. Armed Forces
- Chapter 7 - Certain Broadcasters [Reserved]
- Chapter 8 - Certain Iraqi Nationals
- Chapter 9 - Certain Afghan Nationals
- Chapter 10 - Certain Iraqi and Afghan Translators and Interpreters
- Chapter 11 - Decision and Post-Adjudication
- Part I - Family-Based Conditional Permanent Residents
- Chapter 1 - Purpose and Background [Reserved]
- Chapter 2 - Terms and Conditions of CPR Status [Reserved]
- Chapter 3 - Petition to Remove Conditions on Residence
- Chapter 4 - Joint Petitions and Individual Filing Requests [Reserved]
- Chapter 5 - Waiver of Joint Filing Requirement [Reserved]
- Chapter 6 - Decision and Post-Adjudication [Reserved]
- Chapter 7 - Effect of Removal Proceedings [Reserved]
- Part A - Adjustment of Status Policies and Procedures
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility Requirements
- Chapter 3 - Filing Instructions
- Chapter 4 - Documentation
- Chapter 5 - Interview Guidelines
- Chapter 6 - Adjudicative Review
- Chapter 7 - Child Status Protection Act
- Chapter 8 - Transfer of Underlying Basis
- Chapter 9 - Death of Petitioner or Principal Beneficiary
- Chapter 10 - Legal Analysis and Use of Discretion
- Chapter 11 - Decision Procedures
- Part B - 245(a) Adjustment
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility Requirements
- Chapter 3 - Unlawful Immigration Status at Time of Filing (INA 245(c)(2))
- Chapter 4 - Status and Nonimmigrant Visa Violations (INA 245(c)(2) and INA 245(c)(8))
- Chapter 5 - Employment-Based Applicant Not in Lawful Nonimmigrant Status (INA 245(c)(7))
- Chapter 6 - Unauthorized Employment (INA 245(c)(2) and INA 245(c)(8))
- Chapter 7 - Other Barred Adjustment Applicants
- Chapter 8 - Inapplicability of Bars to Adjustment
- Part E - Employment-Based Adjustment
- Chapter 1 - Purpose and Background [Reserved]
- Chapter 2 - Eligibility Requirements [Reserved]
- Chapter 3 - Immigrant Visa Availability and Priority Dates [Reserved]
- Chapter 4 - Documentation and Evidence [Reserved]
- Chapter 5 - Job Portability after Adjustment Filing and Other AC21 Provisions
- Chapter 6 - Adjudication [Reserved]
- Chapter 7 - National Interest Waiver Physicians [Reserved]
- Part F - Special Immigrant-Based Adjustment
- Chapter 1 - Purpose and Background
- Chapter 2 - Religious Workers
- Chapter 3 - International Employees of U.S. Government Abroad
- Chapter 4 - Panama Canal Zone Employees
- Chapter 5 - Certain Physicians
- Chapter 6 - Certain G-4 or NATO-6 Employees and their Family Members
- Chapter 7 - Special Immigrant Juveniles
- Chapter 8 - Members of the U.S. Armed Forces
- Chapter 9 - Certain Broadcasters
- Chapter 10 - Certain Afghan and Iraqi Nationals
- Part H - Reserved
- Part O - Registration
- Chapter 1 - Presumption of Lawful Admission
- Chapter 2 - Presumption of Lawful Admission Despite Certain Errors Occurring at Entry
- Chapter 3 - Children Born in the United States to Accredited Diplomats
- Chapter 4 - Noncitizens Who Entered the United States Prior to January 1, 1972
- Chapter 5 - Other Special Laws
- Part P - Other Adjustment Programs
- Chapter 1 - Reserved
- Chapter 2 - Reserved
- Chapter 3 - Reserved
- Chapter 4 - Reserved
- Chapter 5 - Liberian Refugee Immigration Fairness
- Chapter 6 - Reserved
- Chapter 7 - Reserved
- Chapter 8 - Reserved
- Chapter 9 - Amerasian Immigrants
- Chapter 10 - Reserved
- Part R - Abandonment of Lawful Permanent Residence
- Part A - Admissibility Policies and Procedures
- Part B - Health-Related Grounds of Inadmissibility
- Chapter 1 - Purpose and Background
- Chapter 2 - Medical Examination and Vaccination Record
- Chapter 3 - Applicability of Medical Examination and Vaccination Requirement
- Chapter 4 - Review of Medical Examination Documentation
- Chapter 5 - Review of Overall Findings
- Chapter 6 - Communicable Diseases of Public Health Significance
- Chapter 7 - Physical or Mental Disorder with Associated Harmful Behavior
- Chapter 8 - Drug Abuse or Drug Addiction
- Chapter 9 - Vaccination Requirement
- Chapter 10 - Other Medical Conditions
- Chapter 11 - Inadmissibility Determination
- Chapter 12 - Waiver Authority
- Part D - Criminal and Related Grounds of Inadmissibility
- Part E - Terrorism
- Part F - National Security and Related Grounds of Inadmissibility
- Chapter 1 - Purpose and Background [Reserved]
- Chapter 2 - [Reserved]
- Chapter 3 - Immigrant Membership in Totalitarian Party
- Part G - Public Charge Ground of Inadmissibility
- Chapter 1 - Purpose and Background
- Chapter 2 - Definitions
- Chapter 3 - Applicability
- Chapter 4 - Prospective Determination Based on the Totality of the Circumstances
- Chapter 5 - Statutory Minimum Factors
- Chapter 6 - Affidavit of Support Under Section 213A of the INA
- Chapter 7 - Consideration of Current and/or Past Receipt of Public Cash Assistance for Income Maintenance or Long-term Institutionalization at Government Expense
- Chapter 8 - Waivers of Inadmissibility Based on Public Charge Ground
- Chapter 9 - Adjudicating Public Charge Inadmissibility for Adjustment of Status Applications
- Chapter 10 - Public Charge Bonds
- Chapter 11 - Public Charge Bonds: Posting and Accepting Bonds
- Chapter 12 - Public Charge Bonds: Maintaining, Substituting, and Canceling Bonds
- Part H - Labor Certification and Select Immigrant Qualifications
- Part L - Documentation Requirements
- Part M - Citizenship Ineligibility
- Part N - Noncitizens Previously Removed
- Part O - Noncitizens Unlawfully Present
- Chapter 1 - Purpose and Background [Reserved]
- Chapter 2 - Reserved
- Chapter 3 - Reserved
- Chapter 4 - Reserved
- Chapter 5 - Reserved
- Chapter 6 - Effect of Seeking Admission Following Accrual of Unlawful Presence
- Part Q - Practicing Polygamists, International Child Abductors, Unlawful Voters, and Tax Evaders
- Part C - Family Unity, Humanitarian Purposes, or Public or National Interest
- Part E - Criminal and Related Grounds of Inadmissibility
- Part G - Unlawful Presence
- Part H - Provisional Unlawful Presence
- Part I - Immigrant Membership in Totalitarian Party
- Part J - Alien Smuggling
- Part K - Noncitizens Subject to Civil Penalty
- Part L - Refugees and Asylees
- Part M - Temporary Protected Status Applicants
- Part N - Special Immigrant Juvenile Adjustment Applicants
- Part O - Victims of Trafficking
- Chapter 1 - Purpose and Background [Reserved]
- Chapter 2 - Waivers for Victims of Trafficking
- Chapter 3 - INA 212(d)(13) Waivers
- Chapter 4 - INA 212(d)(3) Waivers
- Chapter 5 - Adjudication and Post-Adjudication Matters
- Part P - Crime Victims
- Part Q - Violence Against Women Act Applicants
- Part R - Other Waivers and Provisions Overcoming Inadmissibility
- Part A - Employment Authorization Policies and Procedures
- Chapter 1 - Purpose and Background
- Chapter 2 - Eligibility Requirements
- Chapter 3 - Documentation and Evidence [Reserved]
- Chapter 4 - Adjudication
- Chapter 5 - Reserved
- Chapter 6 - Card Production and Card Correction [Reserved]
- Chapter 7 - Post-Decision Actions [Reserved]
- Part D - General Naturalization Requirements
- Chapter 1 - Purpose and Background
- Chapter 2 - Lawful Permanent Resident Admission for Naturalization
- Chapter 3 - Continuous Residence
- Chapter 4 - Physical Presence
- Chapter 5 - Modifications and Exceptions to Continuous Residence and Physical Presence
- Chapter 6 - Jurisdiction, Place of Residence, and Early Filing
- Chapter 7 - Attachment to the Constitution
- Chapter 8 - Educational Requirements
- Chapter 9 - Good Moral Character
- Part H - Children of U.S. Citizens
- Chapter 1 - Purpose and Background
- Chapter 2 - Definition of Child and Residence for Citizenship and Naturalization
- Chapter 3 - U.S. Citizens at Birth (INA 301 and 309)
- Chapter 4 - Automatic Acquisition of Citizenship after Birth (INA 320)
- Chapter 5 - Child Residing Outside of the United States (INA 322)
- Chapter 6 - Special Provisions for the Naturalization of Children
- Part I - Military Members and their Families
- Chapter 1 - Purpose and Background
- Chapter 2 - One Year of Military Service during Peacetime (INA 328)
- Chapter 3 - Military Service during Hostilities (INA 329)
- Chapter 4 - Permanent Bars to Naturalization
- Chapter 5 - Application and Filing for Service Members (INA 328 and 329)
- Chapter 6 - Required Background Checks
- Chapter 7 - Revocation of Naturalization
- Chapter 8 - Posthumous Citizenship (INA 329A)
- Chapter 9 - Spouses, Children, and Surviving Family Benefits
Volume 1 - General Policies and Procedures
Part A - Public Services
Chapter 1 - Purpose and Background
A. Purpose
USCIS is the government agency that administers lawful immigration to the United States. USCIS has nearly 20,000 government employees and contractors working at more than 200 offices around the world. USCIS ensures its employees have the knowledge and tools needed to administer the lawful immigration system with professionalism. USCIS provides accessible, reliable, and accurate guidance and information about its public services.
This part provides guidance on USCIS public services, privacy, online tools, and other general administration topics.
B. Background
On March 1, 2003, USCIS assumed responsibility for the immigration service functions of the federal government. The Homeland Security Act of 2002 dismantled the Immigration and Naturalization Service (INS) and separated the agency into three components within the Department of Homeland Security (DHS).[1]
The Homeland Security Act created USCIS to enhance the security and efficiency of national immigration services by focusing exclusively on the administration of benefit applications. The law also formed Immigration and Customs Enforcement (ICE) and Customs and Border Protection (CBP) to oversee immigration enforcement and border security.
USCIS benefits from a legacy of more than 100 years of federal immigration and naturalization administration.[2] The Agency History page on USCIS’ website provides information about the agency’s history, presents research from the History Office’s historians, and makes selected historical documents available electronically.
C. Mission Statement
USCIS upholds America’s promise as a nation of welcome and possibility with fairness, integrity, and respect for all we serve.[3]
D. Legal Authorities
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Homeland Security Act of 2002, Pub. L. 107–296 (PDF)[4] – Dismantled the INS and created USCIS to enhance the security and efficiency of national immigration services by focusing exclusively on the administration of benefit applications
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Privacy Act of 1974, 5 U.S.C. 552a (PDF), as amended[5] – Establishes a code of fair information practices that governs the collection, maintenance, use, and dissemination of information about persons that is maintained in systems of records by federal agencies
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Section 504 of the Rehabilitation Act of 1973, Pub. L. 93-112 (PDF)[6] – Ensuring persons with a disability are not excluded from participation in or subjected to discrimination under any program or activity receiving federal financial assistance or under any program or activity conducted by any federal agency
Footnotes
[^ 1] See Homeland Security Act of 2002, Pub. L. 107–296 (PDF), 116 Stat. 2135 (November 25, 2002).
[^ 2] See the Organizational Timeline page on USCIS’ website.
[^ 3] See the About Us page on USCIS’ website.
[^ 4] See Pub. L. 107–296 (PDF), 116 Stat. 2135 (November 25, 2002).
[^ 5] See Pub. L. 93-579 (PDF), 88 Stat. 1896 (December 31, 1974).
[^ 6] See Section 504 of Pub. L. 93-112 (PDF), 87 Stat. 355, 394 (September 26, 1973).
Chapter 2 - Web-Based Information
A. Website
The USCIS website (uscis.gov) provides the public with access to current information about USCIS’ work, as well as current news releases, alerts, and other updates.
The USCIS website provides the following:
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Timely and accurate information on immigration and citizenship services and benefits offered by USCIS;
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Easy access to forms, form instructions, agency guidance, and other information required to successfully submit applications and petitions;
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The latest news and policy updates, including progress in support of Executive Orders;
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Information on outreach events and efforts; and
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Information on ways to contact USCIS.[1]
USCIS designed the website to accommodate easy navigation to highly trafficked pages directly from the home page, as well as a logical structure and search capability for easy access to all other pages.
In addition to uscis.gov, USCIS also hosts the following sub-sites:
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myUSCIS – Allows stakeholders to explore immigration options, create an online USCIS account, locate a physician to complete medical exams, practice the civics test, and complete other tasks online
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Citizenship Resource Center – Hosts information and resources designed to assist prospective citizens
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USCIS Policy Manual – The agency’s centralized online repository for USCIS’ immigration policies[2]
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InfoPass – System used by USCIS Contact Center for scheduling in-person services at domestic field offices on behalf of benefit requestors and other interested parties.
USCIS makes every effort to provide complete and accurate information on its website. USCIS does its best to update information and correct errors brought to its attention as soon as possible. Both the English language and Spanish language pages are updated at the same time, as appropriate.
B. Social Media
Social media is an informal means of communication that also connects benefit requestors and other interested parties with core information and services on the USCIS website. In this way, social media complements the USCIS website and increases USCIS’ ability to communicate with the public.
USCIS’ social media presence includes:
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Twitter (Main and for E-Verify) – for concise information and news, usually accompanied by links back to uscis.gov
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Facebook – for information and news, usually accompanied by links back to uscis.gov
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YouTube – for videos
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Instagram – for photos and informational graphics
The USCIS Office of Public Affairs (OPA) manages all USCIS social media accounts, working with various USCIS leadership and other offices to develop content. USCIS’ posts are visible to anyone with internet access.
USCIS generally uses social media to make information and services widely available to the general public, to promote transparency and accountability, and to help those seeking information or services from USCIS. USCIS posts information only after it has been appropriately approved and vetted by OPA. Only USCIS employees acting in their official capacity are authorized to post to USCIS social media sites.
Comments on USCIS’ social media channels are visible to the public. To protect their privacy, commenters should not include full names, phone numbers, email addresses, Social Security numbers, case numbers, or any other private information in comments.
USCIS does not moderate user comments on its channels before posting, but reserves the right to remove any materials that pose a security risk or otherwise violate the USCIS social media policy. Any opinions expressed in comments, except as specifically noted, are those of the individual commenters and do not reflect any agency policy, endorsement, or action. USCIS does not collect or retain comments in its records.
Use of each social media site is governed by that site’s privacy policy.[3]
Footnotes
[^ 1] See the Contact Us page on USCIS’ website.
[^ 2] The USCIS Policy Manual will ultimately replace the Adjudicator’s Field Manual (AFM), the USCIS Immigration Policy Memoranda site, and other policy repositories.
[^ 3] See the USCIS website for information on Social Media Policy.
Chapter 3 - Forms of Assistance
A. In-Person
1. Local Field Office
Persons with case-specific inquiries who have tried using the online tools and have not been able to attain the information they are looking for may call the USCIS Contact Center at 1-800-375-5283 (TTY: 1-800-767-1833). In-person appointments at Field Offices are reserved for critical services that require a person’s physical presence in the office to resolve the issue.
2. Community Outreach
USCIS engages in community outreach programs to educate and increase public awareness, increase dialogue and visibility, and solicit feedback on USCIS operations. During outreach events in local communities, USCIS employees do not respond to case-specific inquiries. Anyone asking case-specific questions at outreach events should be directed to submit their inquiry through appropriate channels.
The topics of community outreach programs are varied. Information on past and future outreach events can be found on the USCIS website. The website provides a list of future engagements and instructions on how to register to attend. Many events also have call-in numbers for those unable to attend in person. The website also contains notes and supporting documents from previous engagements.
B. Online
1. USCIS Online Account
USCIS online accounts allow applicants, petitioners, and representatives to access personalized, real-time information related to their individual case 24 hours a day through any internet-connected device. Persons can also communicate directly with the USCIS Contact Center through the secure messaging function to receive email responses to their case-specific inquiries. This is the easiest and most comprehensive way to communicate with USCIS regarding case-specific issues.
2. Online Messages
Benefit requestors can send messages and inquiries directly to the USCIS Contact Center, without an online account, and receive an email or phone response within 24 to 48 hours. Since these messages are outside of USCIS’ secure online account experience, Contact Center staff are limited from sharing case-specific information to ensure the privacy of benefit requestors. The USCIS online account is the preferred method of contacting the agency for easy, timely, and effective responses to case-specific inquiries.
3. Emma and Live Web Chat
Emma is the USCIS Virtual Assistant. Emma can provide immediate responses to non-case-specific questions about immigration services and benefits, guide users through our comprehensive website, and connect benefit requestors and other interested parties to a live agent through web chat for more in-depth topics and questions.
4. Email
USCIS offices may provide designated email boxes for case-specific inquiries about a pending or adjudicated petition or application. Before submitting an inquiry, the person inquiring should review all available information listed on the USCIS Contact US web page to ensure that the inquiry is properly routed.
USCIS officers should use caution when responding to email inquiries requesting case-specific information, as issues of privacy and identity may arise.[1]
C. Telephone
1. USCIS Contact Center
For the convenience of benefit requestors and other interested parties located within the United States, USCIS provides a toll-free phone number answered by the USCIS Contact Center available 24 hours a day, 7 days a week. Automated information accessed through a menu of interactive options is always available. For information on when live help through a USCIS representative is available, see the USCIS Contact Center web page.
The toll-free phone number for the USCIS Contact Center is 1-800-375-5283 (TTY for the deaf, hard of hearing, or person with a speech disability: 1-800-767-1833).
Multi-Tiered Structure
The USCIS Contact Center provides escalating levels of service to handle inquiries of increasing complexity, primarily through an Interactive Voice Response (IVR) system and a multi-tiered level of live assistance.
IVR – Callers initially have the opportunity to have their questions answered directly by the IVR system. If additional assistance is needed, callers may request live assistance by selecting that option from within the IVR.
Tier 1 – Tier 1 is the first level of live assistance. Tier 1 staff members, who are contract employees, provide basic case-specific and general non-case-specific information. These responses follow a formatted script.
Tier 2 – If Tier 1 is unable to completely resolve an inquiry, the call may be transferred to the Tier 2 level of live assistance to be answered by a USCIS officer.
Callers may, at any time, request to have a call directed to a supervisor.
If an inquiry involves a case physically located at a domestic USCIS field office or service center, the USCIS Contact Center may create a service request. The service request is automatically routed to the USCIS office that can best resolve the inquiry. If an inquiry involves a case physically located at an international USCIS field office, the USCIS Contact Center may provide the caller with that office’s contact information and refer the inquiry, as appropriate.
2. International Service
Persons located outside of the United States should contact the international office with jurisdiction over their place of residence. USCIS provides a complete listing of international jurisdictions and field offices and their phone numbers on the International Immigration Offices page of the USCIS website.
3. Military Help Line
USCIS provides a toll-free military help line exclusively for members of the military and their families. For information on when USCIS military help line staff are available to answer calls, see the Military Help Line web page. After-hours callers will receive an email address they can use to contact USCIS for assistance.
The toll-free phone number for the military help line is 1-877-CIS-4MIL (1-877-247-4645) (TTY: for the deaf, hard of hearing, or person with a speech disability: 1-800-767-1833).
4. Premium Processing Line
USCIS provides a toll-free phone number exclusively for inquiries about petitions filed under the Premium Processing program.[2] The toll-free phone number for the Premium Processing Line is 1-866-315-5718.
5. Intercountry Adoptions Line
USCIS provides a toll-free phone number exclusively for inquiries about domestically filed applications and petitions under the Orphan and Hague intercountry adoption programs.[3] The toll-free phone number for the Intercountry Adoptions Line is 1-877-424-8374.
D. Traditional Mail or Facsimile
1. Traditional Mail
General mailing addresses are publicly available to allow the submission of applications and petitions, responses to requests for evidence, or service requests in a hard copy format.[4] Dedicated mailing addresses are available, as appropriate, to aid specific USCIS processes.
Mailing addresses are available at the Find a USCIS Office page on the USCIS website.
2. Facsimile (Fax)
USCIS does not provide general delivery facsimile (fax) numbers. While USCIS does not publish dedicated fax numbers, USCIS offices have the discretion to provide a fax number when appropriate. For example, an officer may provide a fax number for the purpose of submitting documentation electronically to aid in the efficient resolution of a case or as a method to expedite delivery of requested documents or information. Documents should not be submitted by fax unless specifically requested by a USCIS employee.
Footnotes
[^ 1] See Chapter 7, Privacy and Confidentiality [1 USCIS-PM A.7].
[^ 2] See the USCIS website for more information on Premium Processing Service. See Request for Premium Processing Service (Form I-907).
[^ 3] See the USCIS website for additional adoption-related contact information and more details about Orphan or Hague Process.
[^ 4] A service request is a tool that allows stakeholders to place an inquiry with USCIS for certain applications, petitions, and services. Service requests may also be submitted through the USCIS Contact Center or online. See Chapter 4, Service Request Management Tool [1 USCIS-PM A.4].
Chapter 4 - Service Request Management Tool
A. Generating Service Requests
1. USCIS-Generated
The Service Request Management Tool (SRMT) provides USCIS staff the ability to record and transfer unresolved service requests by benefit requestors and other interested parties to the appropriate USCIS service center, domestic USCIS field office, or USCIS asylum office where the application or petition is pending a decision or was adjudicated.
If an inquiry received through a call to the USCIS Contact Center cannot be resolved during the call, and the inquiry warrants creation of a service request, USCIS Contact Center staff will create a service request. Although the majority of service requests are created by staff at the USCIS Contact Center, officers in other locations may also create service requests. Using the SRMT to create a service request allows the person inquiring to receive a response without having to call the USCIS Contact Center again or return to a USCIS office in most instances.
2. Self-Generated
By using an online portal, a person may create a service request in the following categories:
-
Change of address (COA) request (unless filing as a Violence Against Women Act (VAWA), T nonimmigrant, or U nonimmigrant applicant or petitioner);[1]
-
Request regarding a notice, card, or other document that was not received;
-
Request regarding a case outside normal processing time;
-
Request for accommodations;[2] or
-
Request for correction of a typographic error.
Benefit requestors may also submit a service request by mailing in a hard copy to a domestic USCIS field office.[3]
B. Responding to Service Requests
1. Timely Response
The USCIS office receiving a service request should take the necessary steps to communicate directly with the benefit requestor about the inquiry or timely relocate the inquiry to another office or organization when appropriate.
USCIS categorizes a service request based upon the urgency and request type, and assigns a target completion date based on the category. USCIS completes requests within each category on a first-in, first-out basis. In general, the goal for resolution of service requests is 15 calendar days from the date of creation.
2. Prioritized Requests
The following requests receive processing priority and should be responded to within 7 calendar days from the date of creation:
Change of Address
USCIS must process change of address (COA) requests at the earliest opportunity to reduce the potential for undeliverable mail and associated concerns. The address recorded on all open associated application or petition receipts must be updated unless instructed otherwise by the person. Address changes are only limited to select identified receipts when the person explicitly requests the COA request be restricted.
When the address listed for the applicant in any request is different from the address listed in USCIS information systems, it is considered to be an address change request, regardless of whether the request was specifically for a COA or for another reason. The address in the request is then used to change address records on all directly related receipts.
However, no COA request is inferred if the service request was initiated by a representative and the address listed in the request is the representative’s address. Also, in these situations, a copy of the response should be mailed to the petitioner or applicant at his or her address of record.
USCIS does not accept COA requests on a VAWA, T nonimmigrant, or U nonimmigrant-related application or petition that are received through an SRMT. A hard-copy, signed COA request submitted through traditional mail is required. Offices should respond to VAWA, T nonimmigrant, and U nonimmigrant COA requests using the standard language.[4]
Expedite Requests[5]
Expedite service requests are self-identified as urgent. The person requesting expedited service may be required to submit evidence to the office processing their case to support the expedite request.
Reasonable Accommodation[6]
Reasonable accommodation service requests must be responded to in accordance with the disability accommodations policy.
Military Referral
Military referrals have implied urgency based upon the uncertainty of reassignments and deployments.
Footnotes
[^ 1] For information on COA in VAWA, T, U, see Chapter 7, Privacy and Confidentiality, Section E, VAWA, T, and U Cases [1 USCIS-PM A.7(E)].
[^ 2] See Chapter 6, Disability Accommodation Requests [1 USCIS-PM A.6].
[^ 3] See Chapter 3, Forms of Assistance, Section D, Traditional Mail or Facsimile [1 USCIS-PM A.3(D)].
[^ 4] See Section E, VAWA, T, and U Cases, Subsection 3, USCIS Assistance [1 USCIS-PM A.7(E)(3)].
[^ 5] Expedite requests are distinct from premium processing. For information on expedite requests and premium processing, see Chapter 5, Requests to Expedite Applications or Petitions [1 USCIS-PM A.5].
[^ 6] See Chapter 6, Disability Accommodation Requests [1 USCIS-PM A.6].
Chapter 5 - Requests to Expedite Applications or Petitions
Immigration benefit requestors may request that USCIS expedite the adjudication of their applications or petitions. USCIS considers all expedite requests on a case-by-case basis and may require additional documentation to support such requests. The decision to accommodate an expedite request is within the sole discretion of USCIS.[1] Because granting an expedite request means that USCIS would adjudicate the requestor's benefit ahead of others who filed earlier, USCIS carefully weighs the urgency and merit of each expedite request.
Expedite Criteria or Circumstances
On or after June 9, 2021,[2] USCIS may expedite a benefit request if it falls under one or more of the following criteria or circumstance:
-
Severe financial loss to a company or person, provided that the need for urgent action is not the result of the petitioner’s or applicant’s failure: (1) to timely file the benefit request; or (2) to timely respond to any requests for additional evidence;[3]
-
Emergencies and urgent humanitarian reasons;
-
Nonprofit organization (as designated by the Internal Revenue Service (IRS)) whose request is in furtherance of the cultural or social interests of the United States;
-
U.S. government interests (including cases identified as urgent by federal agencies such as the U.S. Department of Defense (DOD), U.S. Department of Labor (DOL), National Labor Relations Board (NLRB), the Equal Employment Opportunity Commission (EEOC), the U.S. Department of Justice (DOJ), the U.S. Department of State (DOS), DHS, or other public safety or national security interests); or
-
Clear USCIS error.
Severe Financial Loss as a Basis for Expedited Treatment
A company can demonstrate that it would suffer a severe financial loss if it is at risk of failing, losing a critical contract, or required to lay off other employees. For example, a medical office may suffer severe financial loss if a gap in a doctor’s employment authorization would require the medical practice to lay off its medical assistants.
Job loss may be sufficient to establish severe financial loss for a person, depending on the individual circumstances. For example, the inability to travel for work that would result in job loss might warrant expedited treatment. The need to obtain employment authorization, standing alone, without evidence of other compelling factors, does not warrant expedited treatment.
In addition, severe financial loss may also be established where failure to expedite would result in a loss of critical public benefits or services.
Expedited Treatment Based on Emergency or Urgent Humanitarian Reason
In the context of an expedite request, humanitarian reasons are those related to human welfare. Examples may include, but are not limited to, illness, disability, extreme living conditions, death in the family, or a critical need to travel to obtain medical treatment in a limited amount of time.
An emergency may include an urgent need to expedite employment authorization for healthcare workers during a national emergency such as the COVID-19 pandemic. Additionally, an expedite request may be considered under this criterion in instances where a vulnerable person’s safety may be compromised due to a breach of confidentiality if there is a delay in processing the benefit application.[4] A benefit requestor’s desire to travel for vacation does not, in general, meet the definition of an emergency.
Nonprofit Organization Seeking Expedited Treatment
A nonprofit organization seeking to expedite a beneficiary’s benefit request must demonstrate an urgent need to expedite the case based on the beneficiary’s specific role within the nonprofit in furthering cultural or social interests (as opposed to the organization’s role in furthering social or cultural interests). Examples may include a medical professional urgently needed for medical research related to a specific “social” U.S. interest (such as the COVID-19 pandemic or other socially impactful research or project) or a university professor urgently needed to participate in a specific and imminent cultural program. Another example is a religious organization that urgently needs a beneficiary’s specific services and skill set to continue a vital social outreach program. In such instances, the religious organization must articulate why the respective beneficiary is specifically needed, as opposed to pointing to a general shortage alone.
Expedited Treatment Based on U.S. Government Interests
U.S. government interests may include, but are not limited to, cases identified as urgent by other government agencies, including labor and employment agencies, and public safety or national security interests.
For expedite requests made by a federal agency, involving other public safety or national security interests, the national interest need must be immediate and substantive. If the need for the action is not immediate, expedited processing is not warranted. A substantive need does not mean that a delay would pose existential or irreversible consequences to the national interests but rather that the case at hand is of a scale or a uniqueness that requires immediate action to prevent real and serious harm to U.S. interests.
Expedite requests from DOL, NLRB, DOJ, EEOC, DOS, DHS, or another government agency (federal, state, or local) must be made by a senior-level official of that agency. If the request relates to employment authorization, the request must demonstrate that the need for a person to be employment-authorized is mission-critical and goes beyond a general need to retain a particular worker or person. Examples include, but are not limited to, a noncitizen victim or witness cooperating with a federal, state, or local agency who is in need of employment authorization because the respective agency is seeking back pay or reinstatement in court proceedings.
How USCIS Assesses Requests for Expedited Treatment
Not every circumstance that fits under one of the above listed categories or examples necessarily results in expedited processing.
USCIS generally does not consider expedite requests for petitions and applications where Premium Processing Service is available. However, a petitioner that is designated as a nonprofit organization by the IRS seeking a beneficiary whose services are needed in furtherance of the cultural or social interests of the United States may request that the benefit it seeks be expedited without a fee, even if premium processing is available for that benefit. USCIS retains discretion to not accommodate that request. The same petitioner may also request premium processing for the benefit like any other petitioner if it chooses to do so.
Expedited processing of benefit requests for noncitizens with final orders of removal or noncitizens in removal proceedings is coordinated between USCIS and U.S. Immigration and Customs Enforcement (ICE).[5]
To increase efficiency in the review and processing of expedite requests, USCIS does not provide justification or otherwise respond regarding decisions on expedite requests.
In addition, some circumstances may prolong or inhibit USCIS’ ability to expedite certain benefit requests. For example, where an application or petition requires an on-site inspection, USCIS can only expedite that application or petition once the on-site inspection is complete.[6] Another example of a circumstance that delays USCIS’ ability to expedite a benefit request is where the benefit is ancillary to a primary application or petition that is still pending. In such cases, requesting to expedite the primary application or petition (such as an Application to Extend/Change Nonimmigrant Status (Form I-539) or Petition for a Nonimmigrant Worker (Form I-129)) instead of requesting to expedite the ancillary application (such as an Application for Employment Authorization (Form I-765)) would better facilitate USCIS’ ability to process the ancillary application faster.
USCIS provides more information on how to make an expedite request on the How to Make an Expedite Request webpage.
Footnotes
[^ 1] For more information on expedite requests for adjudications of asylum applications, see the Affirmative Asylum Procedures Manual (PDF, 1.83 MB), Section III.B. Categories of Cases, Part 7, Expeditious Processing Required, and the Affirmative Asylum Interview Scheduling webpage. Expedite requests for refugee cases should be made to the applicable U.S. Department of State Resettlement Support Center, which facilitates informing the appropriate party of the expedite request.
[^ 2] On June 9, 2021, USCIS updated its policy to, among other things, clarify criteria and circumstances under which USCIS generally considers expedite requests; the update became effective upon publication. See USCIS Expedite Criteria and Circumstances (PDF, 293.62 KB), PA-2021-12, issued June 9, 2021.
[^ 3] For more information on timely filed requests, see Part B, Submission of Benefit Requests, Chapter 6, Submitting Requests [1 USCIS-PM B.6]. For more information about failure to timely respond to Requests for Evidence and Notices of Intent to Deny, see Part E, Adjudications, Chapter 6, Evidence, Section F, Requests for Evidence and Notices of Intent to Deny [1 USCIS-PM E.6(F)].
[^ 4] See 8 U.S.C. 1367.
[^ 5] See Part E, Adjudications, Chapter 3, Jurisdiction, Section A, Coordination in Cases Involving Removal Proceedings [1 USCIS-PM E.3(A)].
[^ 6] USCIS cannot expedite certain aspects of its processing, including on-site inspections.
Chapter 6 - Disability Accommodation Requests
A. Background
USCIS accepts requests for accommodations from benefit requestors, other interested parties, and other persons with disabilities who use USCIS services and access USCIS facilities. Accommodation requests may be made in advance for instances that include, but are not limited to:
-
An interview with an officer;
-
An oath ceremony; or
-
A USCIS-sponsored public event.
Accommodations ensure compliance with Section 504 of the Rehabilitation Act of 1973,[1] which states that “[n]o otherwise qualified individual with a disability in the United States . . . shall, solely by reason of her or his disability, be excluded from participation in, be denied the benefits of, or be subjected to discrimination under any program or activity receiving federal financial assistance or under any program or activity conducted by any Executive agency.”[2]
B. Reasonable Accommodation
The essential feature of an accommodation is that it allows the person with a disability to participate in the process or activity. While USCIS is not required to make major modifications that would result in a fundamental change to the processes or cause an undue burden for the agency, USCIS makes every effort to provide accommodations to persons with disabilities. Reasonable accommodations vary, depending on the situation and the person’s disability.
Benefit requestors must satisfy all of the legal requirements to receive an immigration benefit; however, USCIS must provide reasonable accommodations to persons with disabilities to afford them the opportunity to meet those requirements.
Examples of accommodations include, but are not limited to:
-
Those unable to use their hands may be permitted to take a test orally rather than in writing;
-
Those who are deaf or hard of hearing may be provided with a sign language interpreter for a USCIS-sponsored event;[3]
-
Those unable to speak may be allowed to respond to questions in an agreed-upon nonverbal manner;[4]
-
Those unable to travel to a designated USCIS location for an interview due to a disabling condition may be interviewed at their home or a medical facility.
C. Requesting Accommodation
1. How to Make a Disability Accommodation Request
To request disability accommodation for any phase of the application process, benefit requestors, other interested parties, and other persons with disabilities who use USCIS services and access USCIS facilities, should generally submit the request online using the Disability Accommodations for Appointments tool.[5] Requestors should submit accommodation requests to USCIS as soon as they are aware of the need for an accommodation for a particular event. The more advance notice USCIS has, the more likely it will be able to make appropriate arrangements for the accommodation request.[6]
2. USCIS Points-of-Contact
To ensure accountability, each field office, application support center (ASC), or asylum office must designate at least one employee to be responsible for handling accommodation requests. All employees should be aware of the procedures for handling such requests.
If a requestor contacts the field office, ASC, or asylum office directly to request a disability accommodation for an interview, the office may enter a service request into the Service Request Management Tool (SRMT) to work with the requestor to respond to the request, and mark the request as fulfilled when it is complete so that the request and the response are recorded.
Offices are encouraged to provide reasonable accommodation requests made by walk-ins whenever practical. If the accommodation is not available, the office should inform the requestor that the office is not able to provide the accommodation at that time, but that arrangements can be made to provide the accommodation for a future appointment or event.
3. USCIS Review
USCIS evaluates each request for a reasonable accommodation on a case-by-case basis. The Public Disability Access Coordinator must generally concur on any alternative accommodation offered or any accommodation denial before the office communicates either action to the requestor.
While a requestor is not required to include documentation of a medical condition in support of a reasonable accommodation request, an office may need documentation to evaluate the request in rare cases. In these situations, the office must consult the Public Disability Access Coordinator for guidance before the USCIS office requests medical documentation to support an accommodation request.
4. Review Timeframe
In general, the affected USCIS office determines whether it may reasonably comply with the accommodation request within 7 calendar days of receiving the request, unless unusual circumstances exist.
If an accommodation is warranted, it should be provided on the date and time of the scheduled event; rescheduling should be avoided, if possible. If an accommodation cannot be provided for the originally scheduled event, the requestor should be notified as soon as possible. Any rescheduling should occur within a reasonable period of time.
5. Reconsideration of Denied Request
To request a reconsideration of a denial of a disability accommodation request, the requestor should call the USCIS Contact Center and provide any new information they have in support of their request. Upon receiving the request, the relevant office must review the prior request and any additional information provided. The office should contact the requestor if additional information is needed.
Generally, all affirmed denials must be approved by the Public Disability Access Coordinator, the field office director, ASC manager, or asylum office director, whichever applies.
Footnotes
[^ 1] See Pub. L. 93-112 (PDF) (September 26, 1973).
[^ 2] See Section 504 of the Rehabilitation Act of 1973, Pub. L. 93-112 (PDF), 87 Stat. 355, 394 (September 26, 1973), codified at 29 U.S.C. 794(a). See 6 CFR 15.3 for applicable definitions relating to enforcement of nondiscrimination on the basis of disability in Department of Homeland Security (DHS) federal programs or activities, which includes those conducted by USCIS.
[^ 3] This applies to any member of the public who wants to attend the event, such as a naturalization ceremony or an outreach engagement.
[^ 4] Offices should understand that, while the inability to speak is considered a disability under the Rehabilitation Act, the inability to speak the English language (while being able to speak a foreign language) is not considered a disability under the Act. Therefore, no accommodation is required and one should not be provided if a requestor is unable to speak English. No request for an interpreter should be approved unless the requestor is otherwise eligible. See, for example, 8 CFR 312.4.
[^ 5] For additional instructions on how to submit a disability accommodation request, see the Disability Accommodations for the Public webpage. Applicants who cannot submit their request online should call the USCIS Contact Center at 1-800-375-5283 (TTY: 1-800-767-1833).
[^ 6] For more information on service requests, see Chapter 4, Service Request Management Tool [1 USCIS-PM A.4]. For information on handling disability accommodations related to asylum cases, see Chapter 7, Privacy and Confidentiality, Section F, Asylees and Refugees, Subsection 3, USCIS Assistance [1 USCIS-PM A.7(F)(3)].
Chapter 7 - Privacy and Confidentiality
A. Privacy Act of 1974
The Privacy Act provides that federal agencies must protect against the unauthorized disclosure of personally identifiable information (PII) that it collects, disseminates, uses, or maintains.[1] The Privacy Act requires that personal information belonging to U.S. citizens and lawful permanent residents (LPRs) be protected from unauthorized disclosure. Violations of these requirements may result in civil and criminal penalties.
B. Fair Information Practice Principles
DHS treats all persons, regardless of immigration status, consistent with the Fair Information Practice Principles (FIPPs).[2] The FIPPs are a set of eight principles that are rooted in the tenets of the Privacy Act of 1974. The principles are:
- Transparency;
- Individual participation;
- Purpose specification;
- Data minimization;
- Use limitation;
- Data quality and integrity;
- Security; and
- Accountability and auditing.
The table below provides a description of each principle.
Principle |
Description |
---|---|
Transparency |
DHS provides transparency for how it handles sensitive information through various mechanisms, including Privacy Impact Assessments, System of Records Notices, Privacy Act Statements, and the Freedom of Information Act (FOIA). |
Individual Participation |
To the extent practicable, DHS should involve persons in the process of using their personal information, and they may always request information about themselves through a FOIA request. |
Purpose Specification |
DHS’ default action should be to not collect information, and if it is otherwise necessary, DHS should articulate the authorities that permit collection and must clearly state the purposes of the information collection. |
Data Minimization |
DHS collects only information relevant and necessary to accomplish the purposes specified and special emphasis is placed on reducing the use of sensitive personal information, where practical. |
Use Limitation |
Any sharing of information outside of the agency must be consistent with the use or purpose originally specified. |
Data Quality and Integrity |
DHS should, to the extent practical, ensure that PII is accurate, relevant, timely, and complete. |
Security |
DHS uses appropriate security safeguards against risks such as loss, unauthorized access or use, destruction, modification or unintended or inappropriate disclosure. |
Accountability and Auditing |
DHS has a number of accountability mechanisms, including reviews of its operations, training for employees, and investigations when appropriate. |
C. Personally Identifiable Information
DHS defines PII as any information that permits the identity of a person to be directly or indirectly inferred, including any information which is linked or linkable to that person regardless of whether the person is a U.S. citizen, lawful permanent resident (LPR), visitor to the United States, or a DHS employee or contractor.[3]
Sensitive PII is defined as information which, if lost, compromised, or disclosed without authorization, could result in substantial harm, embarrassment, inconvenience, or unfairness to a person.[4] Some examples of PII that USCIS personnel may encounter include:
-
Name;
-
Address;
-
Date of birth; and
-
Certificate of Naturalization or Citizenship number.
-
Alien number (A-number);
-
Social Security number;
-
Driver’s license or state ID number;
-
Passport number; and
-
Biometric identifiers.
USCIS employees have a professional and legal responsibility to protect the PII the agency collects, disseminates, uses, or maintains. All USCIS employees must follow proper procedures when handling all PII and all information encountered in the course of their work. All USCIS employees processing PII must know and follow the policies and procedures for collecting, storing, handling, and sharing PII. Specifically, USCIS employees must:
-
Collect PII only when authorized;
-
Limit the access and use of PII;
-
Secure PII when not in use;
-
Share PII, only as authorized, with persons who have a need to know; and
-
Complete and remain current with all privacy, computer security, and special protected class training mandates.
D. Case-Specific Inquiries
USCIS receives a variety of case-specific inquiries, including requests for case status updates, accommodations at interviews, appointment rescheduling, and the resolution of other administrative issues. USCIS personnel are permitted to respond to these inquiries if:
-
The requestor is entitled to receive the requested case-specific information; and
-
Disclosure of the requested case-specific information would not violate Privacy Act requirements or other special protected class confidentiality protections.
1. Verifying Identity of Requestor
USCIS employees must verify the identity of a person inquiring about a specific application or petition. For in-person inquiries, those present must provide a government-issued identity document so that USCIS can verify their identity.
For inquiries not received in person (for example, those received through telephone call or email), it may be difficult to verify the identity of the person making the request through a government-issued document. In these cases, USCIS employees should ask for specific identifying information about the case to ensure that it is appropriate to communicate case-specific information. Examples of identifying information include, but are not limited to: receipt numbers, A-numbers, full names, dates of birth, email addresses, and physical addresses.
If a person is unable to provide identifying information that an applicant, petitioner, or representative should reasonably know, USCIS employees may refuse to respond to the request, or direct the requestor to make an appointment at a local field office or create a myUSCIS account.
2. Disclosure of Information
Except for case types with heightened privacy concerns,[5] USCIS employees may communicate about administrative case matters if the requestor is able to demonstrate his or her identity (for example, by showing government-issued identification during an in-person encounter), or provide verifying information sufficient to demonstrate that communication would be proper. Administrative case matters are generally any issues that do not involve the legal substance or merit of an application or petition.
USCIS employees should not disclose PII when responding to case-specific requests; inquiries can generally be resolved without any discussion of PII.[6] To ensure that a USCIS employee is not disclosing PII, the USCIS employee can always require that the requestor first provide and confirm any PII at issue. In addition, a USCIS employee may take action that results in the resending of cards, notices, or documents containing PII to addresses on file instead of directly disclosing PII to a requestor.
Interested parties may be present at in-person appointments or during telephone calls, with the consent of the applicant or petitioner. Consent is usually implied if both the applicant or petitioner and the third party are present together. However, a USCIS employee may always ask the applicant or petitioner if he or she consents to the third-party’s presence if there is any doubt.
3. Communication with Address on File
USCIS sends written responses and duplicate notices to the addresses on file. Before USCIS is able to send any correspondence to a different address, the person must initiate a service request to update his or her address in USCIS systems.[7] Change of address requests associated with cases subject to confidentiality provisions must follow separate procedures.[8]
4. Third-Party Information
Information from other agencies, such as Immigration and Customs Enforcement (ICE), the Federal Bureau of Investigation (FBI), or the Department of State (DOS) may be located in USCIS files and systems. This information must not be released in response to an inquiry, although it may be appropriate to refer the inquiry to another agency.
5. Third-Party Government Inquiries
USCIS may share records covered under the Privacy Act with written consent from the person or pursuant to a routine use listed in the applicable System of Records Notices. Before sharing information with a government entity, USCIS must determine if the disclosure and use of information is compatible with an existing routine use. Planned uses must also be compatible with the purpose for which DHS originally collected the information. There are, however, enumerated exceptions of the Act that may apply.
Congress
One exception is for disclosures to either house of Congress, or any Congressional committee, subcommittee, joint committee, or subcommittee of a joint committee, if the matter is within its jurisdiction. For all other requests from members of Congress, such as constituent requests, the person whose information is to be released must have provided the member of Congress with a privacy release for USCIS to disclose any information related to that person.
The USCIS Office of Legislative and Intergovernmental Affairs (OLIA)) and designated liaisons handle all inquiries and certain correspondence from Congress to USCIS. Members of Congress, congressional offices, and congressional committees should always go through OLIA when initiating an inquiry. The USCIS and Congress webpage on USCIS’ website provides instructions on how members of Congress should interact with and contact USCIS. Non-liaison USCIS employees who are contacted directly with a congressional inquiry should refer it to OLIA so that it may proceed through the proper channels.
Law Enforcement Agencies
Information may be shared with other DHS components under the existing DHS information sharing policy,[9] which considers all DHS components one agency, as long as there is a mission need in line with the requestor’s official duties.
Requests from law enforcement agencies outside of DHS must go through DHS Single Point of Service (SPS) Request for Information (RFI) Management Tool, which requires an account. Account requests can be submitted to DHS-SPS-RFI@hq.dhs.gov.
Before referring any relevant RFI to USCIS, SPS ensures any RFI is consistent with the USCIS mission, has been reviewed and cleared by DHS Counsel and Privacy (as required), and is provided a tracking number. SPS then submits the RFI to Fraud Detection and National Security (FDNS) Intelligence Division (ID). FDNS ID logs official RFIs and takes the necessary steps to process and answer them, including review by USCIS Office of the Chief Counsel and Office of Privacy.
Federal Investigators
If an Office of Personnel Management or DHS Office of Inspector General (OIG) investigator requests information, the USCIS employee should provide the information upon verifying the requestor’s identity. Disclosure of any information needs to meet a routine use or be covered by a data share agreement. USCIS employees and contractors must provide prompt access for auditors, inspectors, investigators, and other personnel authorized by the OIG to any files, records, reports, or other information that may be requested either orally or in writing, and supervisors may not impede this cooperation.
Other Third-Party Inquiries
Prior to responding to a non-congressional third-party case inquiry, a written, signed, and notarized privacy release must be obtained from the applicant or petitioner. Third parties should submit a written authorization and identify the information the person desires to be disclosed. USCIS staff can accept the authorization via facsimile or email as long as the signature on the original is handwritten, and not typed or stamped.[10] The USCIS Office of Privacy will conduct an analysis for disclosure requests for PII on persons not covered by the Privacy Act or the Judicial Redress Act, absent another mechanism that confers a right or process by which a member of the public may access agency records.
E. VAWA, T, and U Cases
1. Confidentiality Provisions
Applicants and recipients of immigration relief under the Violence Against Women Act of 1994 (VAWA)[11] and the Victims of Trafficking and Violence Prevention Act of 2000[12] (T and U nonimmigrant status for victims of trafficking and other serious crimes) are entitled to special protections with regard to privacy and confidentiality. The governing statute prohibits the unauthorized disclosure of information about petitioners and applicants for, and beneficiaries of VAWA, T, and U-related benefit requests to anyone other than an officer or employee of DHS, the Department of Justice (DOJ), or the Department of State (DOS) who has a need to know.[13]
This confidentiality provision is commonly referred to as “Section 384” because it originally became law under Section 384 of the Illegal Immigration Reform and Immigrant Responsibility Act (IIRIRA) of 1996,[14] which protects the confidentiality of victims of domestic violence, trafficking, and other crimes who have filed for or have been granted immigration relief.
An unauthorized disclosure of information which relates to a protected person can have significant consequences. USCIS employees must maintain confidentiality in these cases. Victims of domestic violence, victims of trafficking, and victims of crimes can be put at risk, as can their family members, if information is provided to a person who is not authorized.
Anyone who willfully uses, publishes, or permits any information pertaining to such victims to be disclosed in violation of the above-referenced confidentiality provisions may face disciplinary action and be subject to a civil penalty of up to $5,000 for each violation.
2. Scope of Confidentiality
Duration of Confidentiality Requirement
By law, the confidentiality provisions apply while a VAWA, T, or U case is pending and after it is approved, and ends when the application for immigration relief is denied and all opportunities for appeal of the denial have been exhausted.
Disclosure of Information
USCIS cannot release any information relating to a protected person until the identity of the requestor of information is verified and that person’s authorization to know or receive the protected information is verified. Such identity and eligibility verification must be done before responding to any inquiry, expedite request, referral, or other correspondence. Upon identity verification, USCIS can provide protected information directly to the protected person or his or her representative authorized to receive 1367-protected information.
Exceptions for Disclosure of Information
USCIS is permitted to disclose information relating to a protected person in certain, limited circumstances. These circumstances include:
-
Statistical Information – Disclosure of data and statistical information may be made in the manner and circumstances permitted by law.[15]
-
Legitimate Law Enforcement Purposes – Disclosure of information may be made to law enforcement officials to be used solely for a legitimate law enforcement purpose.
-
Judicial Review – Information can be disclosed in connection with judicial review of a determination provided it is in a manner that protects the confidentiality of the information.
-
Applicant Waives Confidentiality – Adults can voluntarily waive the confidentiality provision; if there are multiple victims in one case, they must all waive the restrictions.
-
Public Benefits – Information may be disclosed to federal, state, and local public and private agencies providing benefits, to be used solely in making determinations of eligibility for benefits.[16]
-
Congressional Oversight Authority (for example, Government Accountability Office audits) – The Attorney General and the Secretary of Homeland Security can disclose information on closed cases to the chairmen and ranking members of Congressional Committees on the Judiciary, for the exercise of Congressional oversight authority. The disclosure must be in a manner that protects the confidentiality of the information and omits PII (including location-related information about a specific person).
-
Communication with Non-Governmental Organizations (NGO) – Government entities adjudicating applications for relief[17] and government personnel carrying out mandated duties under the Immigration and Nationality Act (INA)[18] may, with the prior written consent of the person involved, communicate with nonprofit NGO victims’ service providers for the sole purpose of assisting victims in obtaining victim services. Agencies receiving referrals are bound by the confidentiality provisions.
-
National Security Purposes – The Secretary of Homeland Security, the Secretary of State, or the Attorney General may provide in their discretion the disclosure of information to national security officials to be used solely for a national security purpose in a manner that protects the confidentiality of such information.
-
To sworn officers or employees of the Department of State or Department of Justice, for legitimate Department, bureau, or agency purposes.
3. USCIS Assistance
USCIS employees must ensure confidentiality is maintained when an applicant, petitioner, or beneficiary of certain victim-based benefits requests assistance.
Change of Address
Applicants with VAWA, T, or U-related cases can request a change of address by submitting an Alien’s Change of Address Card (Form AR-11) with an original signature to the Vermont Service Center (VSC) by mail.
If the requestor previously filed for a waiver of the I-751 joint filing requirement because of abuse, the requestor should file a Form AR-11 with an original signature with the USCIS office assigned to work the Form I-751. The requestor can find the appropriate USCIS office by referring to the receipt number issued in response to the Form I-751 filing.[19]
An applicant may also appear in person at a USCIS field office to request a change of address, by calling the USCIS Contact Center at 1-800-375-5283 (TTY: 1-800-767-1833) to request an in-person appointment. The applicant’s identity must be verified before making the requested change. If the case is at the VSC or the Nebraska Service Center (NSC), the field office must also notify the VSC or NSC of the change of address for VAWA, T, and U cases.
Telephonic Inquiries
The identity of the person inquiring about a confidential case must be verified and that person’s eligibility to receive information must also be verified. Such verification cannot be made telephonically.
F. Asylees and Refugees
1. Confidentiality Provisions
Federal regulations generally prohibit the disclosure to third parties of information contained in or pertaining to asylum applications, credible fear determinations, and reasonable fear determinations.[20] This includes information contained in the legacy Refugee Asylum and Parole System (RAPS) or the legacy Asylum Pre-Screening System (APSS), and Global System (the 2018 replacement for RAPS/APSS) or related information as displayed in CIS2 and PCQS, except under certain limited circumstances. As a matter of policy, the confidentiality protections in these regulations are extended to Registration for Classification as Refugee (Form I-590), Refugee/Asylee Relative Petitions (Form I-730), and Applications for Suspension of Deportation or Special Rule Cancellation pursuant to NACARA (Form I-881).
These regulations safeguard information that, if disclosed publicly, could subject the claimant to retaliatory measures by government authorities or non-state actors in the event the claimant is repatriated. Such disclosure could also endanger the security of the claimant’s family members who may still be residing in the country of origin.
Moreover, public disclosure might give rise to a plausible protection claim by the claimant where one would not otherwise exist. This is because such disclosure may bring an otherwise ineligible claimant to the attention of the government authority or non-state actor against which the claimant has made allegations of mistreatment.
2. Breach of Confidentiality
Confidentiality is breached when the unauthorized disclosure of information contained in or pertaining to, these protected classes allows the third party to link the identity of the applicant to:
-
The fact that the applicant or petitioner has applied for asylum or refugee status;
-
Specific facts or allegations pertaining to the individual asylum or refugee claim contained in an asylum or refugee application; or
-
Facts or allegations that are sufficient to give rise to a reasonable inference that the applicant has applied for asylum or refugee status.
The same principles generally govern the disclosure of information related to credible fear and reasonable fear determinations, and applications for withholding or deferral of removal under Article 3 of the Convention Against Torture, which are encompassed within the Application for Asylum and for Withholding of Removal (Form I-589). As a matter of policy, USCIS extends the regulatory safeguards to include claims under the Safe Third Country Agreement, applications for suspension of deportation, special rule cancellation of removal under NACARA 203, refugee case information, as well as refugee and asylee relative information.
Disclosures may only be made to U.S. government officials or employees and U.S. federal or state courts where there is a demonstrated need-to-know related to certain administrative, law enforcement, and civil actions. Any other disclosure requires the written consent of the claimant or the express permission of the Secretary of DHS.
3. USCIS Assistance
USCIS employees must not disclose information contained in, or pertaining to, any asylum or refugee application or claim to any third party without the written consent of the applicant, except as permitted by regulation or at the discretion of the Secretary of DHS.[21]
This includes neither confirming nor denying that a particular person filed a protection claim by submitting any of the following:
-
An Application for Asylum and for Withholding of Removal (Form I-589);
-
A Registration for Classification as Refugee (Form I-590);
-
A Refugee/Asylee Relative Petition (From I-730);
-
A Request for a Safe Third Country Agreement Determination;
-
A Request for a Credible Fear Determination;
-
A Request for a Reasonable Fear Determination; and
-
An Application for Suspension of Deportation or Special Rule Cancellation of Removal (Pursuant to Section 203 of Public Law 105-100 (NACARA) (Form I-881)).
USCIS employees should respond to inquiries related to Form I-589, Form I-881, requests for information pertaining to the Safe Third Country Agreement, credible fear and reasonable fear processes, Form I-590, and Form I-730 in different ways, depending on the inquiry:
Request for Disability Accommodation at an Upcoming Form I-589 Interview
Tier 2 staff members may use the Service Request Management Tool (SRMT) to record and transfer requests to the asylum office with jurisdiction over the pending application. The asylum office then contacts the applicant to arrange for disability accommodation at the interview. While officers must not confirm or deny the existence of a pending protection claim or NACARA 203 application, those making disability accommodation requests for upcoming asylum interviews should be told that the request is being recorded and will be forwarded to the appropriate office for follow-up.
Change of Address Request
Tier 2 staff members may create a service request and submit it to the asylum office or service center with jurisdiction over the pending Form I-589, Form I-881, or Form I-730 petition. The office then fulfills the service request. While staff members must not confirm or deny the existence of a pending protection claim, those making address change requests should be told that the request is being recorded and will be forwarded to the appropriate office.
USCIS Contact Center Status Inquiries for Form I-589, Form I-881, and Form I-730
USCIS Contact Center personnel may not respond to any status inquiries, and may not confirm or deny the existence of an application or petition. Instead, USCIS Contact Center personnel should direct the caller to the Case Status Online tool. If the caller needs further assistance than the Case Status Online tool can provide, USCIS Contact Center personnel should direct the caller to the local office with jurisdiction over the application. For information on office-specific in-person appointment requirement, see the Asylum Office Locator tool. The office with jurisdiction over the application must respond to the inquiry.
USCIS Contact Center Status Inquiries for Form I-590 Applications
USCIS Contact Center personnel may not respond to any status inquiries and may not confirm or deny the existence of an application or petition. Instead, USCIS Contact Center personnel should obtain all relevant information from the inquirer and refer the inquiry to the USCIS Headquarters International and Refugee Affairs Division (IRAD) for response.
Inquiries Regarding Subsequent Applications or Petitions Based on Underlying Form I-589, Form I-590, or Form I-730
Staff members may respond to inquiries regarding subsequent applications or petitions that are based on an underlying Form I-589, Form I-590, or Form I-730 (including Application for Travel Document (Form I-131), Application for Employment Authorization (Form I-765), or Application to Register Permanent Residence or Adjust Status (Form I-485)). Staff members may not confirm or deny the existence of the underlying application.
General Inquiries
USCIS employees may respond to general questions about the asylum program, the U.S. Refugee Admission Program (USRAP), and credible and reasonable fear screenings.[22] However, for all specific case status questions relating to I-589 applications or I-730 petitions, the inquirers must be directed to contact the local asylum office or service center with jurisdiction over the application. For specific case status questions relating to I-590 refugee applications, the inquiry must be referred to RAD for response.
Asylum offices may accept case inquiries from the applicant or the applicant’s attorney or representative with a properly completed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) on file.
Asylum offices may receive case inquiries in a variety of ways, such as by mail, email, phone, fax, or in person. When it is possible to verify the identity of the applicant or attorney or representative inquiring, offices may respond using any of those communication channels. If it is not possible to verify the identity of the inquirer, asylum offices should respond to inquiries by providing a written response to the last address the applicant provided.
RAD does not respond to inquiries over the phone, but instead asks the inquirer to put his or her request in writing so that the signature and return address can be compared to information on file. RAD responds to an inquiry received by email only if the email address matches the information the applicant submitted to the Resettlement Support Center or if the principal applicant provides written consent that includes the principal applicant’s signature.
G. Temporary Protected Status
1. Confidentiality Provisions
Like refugee and asylum cases, information pertaining to Temporary Protected Status (TPS) cases may not be disclosed to certain third parties because unauthorized disclosure of information may place the applicant or the applicant’s family at risk.[23]
The law prohibits the release of information contained in the TPS application or in supporting documentation to third parties without the written consent of the applicant. A third party is defined as anyone other than:
-
The TPS applicant;
-
The TPS applicant’s attorney or authorized representative (with a properly completed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) on file);
-
A DOJ officer, which has also been extended to include a DHS officer following the transfer of certain immigration functions from DOJ to DHS; or
-
Any federal or state law enforcement agency.
2. USCIS Assistance
USCIS may not release any information contained in any TPS application and supporting documents in any form to any third party, without a court order or the written consent of the applicant.[24] Status inquiries may not confirm or deny the existence of a TPS application, or whether a person has TPS, until the identity of the inquirer has been confirmed and it has been determined the inquirer is not a third party to whom information may not be released.
USCIS employees must adhere to these same TPS confidentiality provisions regarding the disclosure of information to third parties, even if the information is contained in a TPS-related form such as:
-
The Application for Employment Authorization (Form I-765), which every TPS applicant must file;
-
A TPS-related waiver requested on Application for Waiver of Grounds of Inadmissibility (Form I-601); or
-
A TPS-related Application for Travel Document (Form I-131).
With respect to confidentiality, USCIS employees must treat these records as they do other TPS supporting documentation in the TPS application package.
USCIS employees may respond to general questions about the TPS program.[25] However, for all case-specific questions relating to Form I-821 applications, USCIS employees must first confirm the identity of the person and his or her eligibility to receive such information.
Offices must not take or respond to inquiries about the status of a TPS application made by telephone, fax, or email because it is not possible to sufficiently verify the identity of the inquirer. Offices may accept written status requests signed by the applicant (or the applicant’s attorney or representative with a properly completed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) on file).
3. Exceptions for Disclosure
Information about TPS applications and information contained in supporting documentation can be disclosed to third parties in two instances:
-
When it is mandated by a court order; or
-
With the written consent of the applicant.
Information about TPS cases can be disclosed to officers of DOJ, DHS, or any federal or state law enforcement agency since they are not considered third parties.[26] Information disclosed under the requirements of the TPS confidentiality regulation may be used for immigration enforcement or in any criminal proceeding.
H. Legalization
1. Confidentiality Provisions
Statutory and regulatory provisions require confidentiality in legalization cases and Legal Immigration Family Equity (LIFE) Act legalization cases, prohibiting the publishing of any information that may be identified with a legalization applicant.[27] The laws also do not permit anyone other than sworn officers and employees of DHS and DOJ to examine individual applications.
Information contained in the legalization application can only be used in the following circumstances:
-
To make a determination on the legalization application;
-
For criminal prosecution of false statements violations;[28] or
-
In preparation of certain reports to Congress.
A breach in confidentiality of legalization cases can result in a $10,000 fine.[29]
2. USCIS Assistance
Case-specific information may be provided to the applicant and the applicant’s attorney or authorized representative (with a properly completed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) on file) after the inquirer’s identity has been verified. No others are authorized to receive legalization information unless one of the enumerated exceptions to disclosure noted below applies.
3. Exceptions for Disclosure
USCIS is permitted to disclose information pertaining to legalization cases in certain, limited circumstances. These circumstances include:
Law Enforcement Purposes
USCIS is required to disclose information to a law enforcement entity in connection with a criminal investigation or prosecution, when that information is requested in writing.
Requested by an Official Coroner
USCIS is also required to disclose information to an official coroner for purposes of affirmatively identifying a deceased person (whether or not the person died as a result of a crime).
Statistical Information
Disclosure of data and statistical information may be made in the manner and circumstances permitted by law.[30]
Available from Another Source
USCIS may disclose information furnished by an applicant in the legalization application, or any other information derived from the application, provided that it is available from another source (for example, another application or if the information is publicly available).
I. Special Agricultural Workers
1. Confidentiality Provisions
Material in A-files filed pursuant to the Special Agricultural Workers (SAW) program is protected by strict confidentiality provisions.[31] The statute provides that the employee who knowingly uses, publishes, or permits information to be examined in violation of the confidentiality provisions may be fined not more than $10,000.[32]
In general, USCIS may not use information furnished by the SAW applicant for any purpose other than to make a determination on the application, for termination of temporary residence, or for enforcement actions relating to false statements in applications.[33] The applicant may not waive the confidentiality provisions, which even survive the death of the applicant.
2. USCIS Assistance
In general, it is permissible for USCIS employees to disclose only that an applicant has applied for SAW and the outcome of the adjudication. Case information may be provided to the applicant and the applicant’s attorney or authorized representative (with a properly completed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) on file) after the inquirer’s identity has been verified. No other parties are authorized to receive SAW information, unless one of the enumerated exceptions to disclosure noted below applies.
3. Exceptions for Disclosure
It is appropriate for DHS and DOJ employees to have access to SAW material. The materials are subject to the above-mentioned penalties for unlawful use, publication, or release. USCIS is permitted to disclose information pertaining to SAW cases in certain, limited circumstances. These circumstances include:
Law Enforcement Purposes
USCIS is required to disclose information to a law enforcement entity in connection with a criminal investigation or prosecution, when that information is requested in writing.
Requested by an Official Coroner
USCIS is also required to disclose information to an official coroner for purposes of affirmatively identifying a deceased person (whether or not the person died as a result of a crime).
Criminal Convictions
Information concerning whether the SAW applicant has at any time been convicted of a crime may be used or released for immigration enforcement or law enforcement purposes.
J. S Nonimmigrant Visa Category
Nonimmigrants under the S visa category are noncitizen[34] witnesses or informants. An S nonimmigrant is not readily identified in USCIS systems. However, if a USCIS employee discovers that an inquiry is from an S nonimmigrant or from someone who has applied for such status, the case must be handled carefully.
Inquiries regarding the following should come from a law enforcement entity:[35]
-
An Interagency Alien Witness and Informant Record (Form I-854A);
-
An Interagency Alien Witness and Informant Adjustment of Status (Form I-854B); and
-
An Application for Employment Authorization (Form I-765) filed on the basis of being a principal nonimmigrant witness or informant in S classification.
If USCIS receives an inquiry regarding the status of a Form I-854 or a Form I-765 filed as an S nonimmigrant, the USCIS employee must neither confirm nor deny the existence of such applications and should inform the person that inquiries on these applications must be submitted through appropriate law enforcement channels.
Under no circumstances may USCIS employees ask questions about the S nonimmigrant’s role in cooperating with law enforcement, the type of criminal activity for which the nonimmigrant is an informant or witness, or any specific information about the case in which the S nonimmigrant may be involved.
K. Witness Security Program
1. Program Participants
Participation in the Witness Security Program (commonly known as the Witness Protection Program) is not reflected in USCIS systems. Applicants in the Witness Security Program should not tell anyone, including USCIS employees, that they are participants in the program. A separate immigration file is created for a new identity of a participant in the program, and information from before and after the change in identity must be in separate files. However, one file will have documentation of a legal name change.
2. USCIS Assistance
If an applicant indicates that he or she is in the Witness Security Program, the applicant should be referred to the U.S. Marshals Service.[36] Also, under no circumstances should USCIS employees ask questions about why or how the applicant was placed in the Witness Security Program or any specific information about the case which resulted in the applicant being placed in the Witness Security Program.
Footnotes
[^ 1] See Privacy Act of 1974, Pub. L. 93-579 (PDF), 88 Stat. 1896 (December 31, 1974) (codified at 5 U.S.C. 552a (PDF)).
[^ 2] See DHS Privacy Policy Guidance Memorandum (PDF), issued April 25, 2017.
[^ 3] See Privacy Incident Handling Guidance (PDF), DHS Instruction Guide 047-01-008, issued December 4, 2017.
[^ 4] See Privacy Incident Handling Guidance (PDF), DHS Instruction Guide 047-01-008, issued December 4, 2017.
[^ 5]The enhanced privacy protections and other confidentiality protections associated with certain applications and petitions mean that merely acknowledging the existence of a pending petition or application could violate statutory and regulatory requirements. As a result, when responding to inquiries about these types of cases, including Violence Against Women Act (VAWA), T, U, and asylum cases, USCIS employees should follow the policies in place for those specific benefits. For more information, see Section E, VAWA, T, and U Cases [1 USCIS-PM A.7(E)] through Section K, Witness Security Program [1 USCIS-PM A.7(K)].
[^ 6] A case’s status generally refers to its current posture in the adjudication process, which is dictated by the last action taken. For example, a case could be pending background checks, with an officer, awaiting response to a request for evidence (RFE), or with a decision issued on a given date.
[^ 7] See USCIS Change of Address web portal. See Chapter 4, Service Request Management Tool, Section B, Responding to Service Requests [1 USCIS-PM A.4(B)].
[^ 8] See Section E, VAWA, T, and U Cases, Subsection 3, USCIS Assistance [1 USCIS-PM A.7(E)(3)].
[^ 9] See The DHS Policy for Internal Information Exchange and Sharing.
[^ 10] For requests from federal, state, or local government agency representatives who want to review or want copies of documents from an A-file, USCIS employees should refer to USCIS records procedures regarding outside agency requests for USCIS files.
[^ 11] See Pub. L. 103-322 (PDF) (September 13, 1994).
[^ 12] See Pub. L. 106-386 (PDF) (October 28, 2000).
[^ 13] See 8 U.S.C. 1367.
[^ 14] See Pub. L. 104-208, 110 Stat. 3009-546, 3009-652 (September 30, 1996).
[^ 15] See 13 U.S.C. 8.
[^ 16] See 8 U.S.C. 1641(c).
[^ 17] This applies to application for relief under 8 U.S.C. 1367(a)(2).
[^ 18] See INA 101(i)(1).
[^ 19] For more information regarding change of address procedures, see the Change of Address Information webpage.
[^ 20] See 8 CFR 208.6.
[^ 21] See 8 CFR 208.6.
[^ 22] Examples of general inquiries include: who can apply for asylum or refugee status, how to apply for asylum or access the USRAP, bars to protection, whether applicants are eligible for work authorization, and number of days it normally takes before an interview is scheduled.
[^ 23] See INA 244(c)(6). See 8 CFR 244.16.
[^ 24] See 8 CFR 244.16 for exceptions.
[^ 25] Examples of general inquiries include: Who can apply for TPS, how to apply for TPS, bars to TPS, whether applicants are eligible for work authorization, and the number of days it normally takes to adjudicate an application for TPS.
[^ 26] See 8 CFR 244.16.
[^ 27] See INA 245A(c)(4)-(5) . See 8 CFR 245a.2(t), 8 CFR 245a.3(n) , and 8 CFR 245a.21.
[^ 28] See INA 245A(c)(6).
[^ 29] See INA 245A(c)(5)(E).
[^ 30] See 13 U.S.C. 8.
[^ 31] See INA 210 . This pertains to the 1987-1988 SAW program.
[^ 32] See INA 210(b)(6)(D).
[^ 33] See INA 210(b)(7).
[^ 34] In this Policy Manual, the term noncitizen, unless otherwise specified, means a person who is not a citizen or national of the United States. This term is synonymous with “alien” as defined in INA 101(a)(3) (8 U.S.C. 1101(a)(3)).
[^ 35] See 8 CFR 274a.12(c)(21).
[^ 36] Officers can find information on how to contact their local U.S. Marshals Service office (if they are in the United States) on the U.S. Marshals Service website. Officers should advise applicants to consult with the U.S. Marshals Service on how to handle the disclosure of their participation in the Witness Protection Program.
Chapter 8 - Conduct in USCIS Facilities
A. Privacy in USCIS Offices
When communicating about personal or case specific information, both USCIS employees and the public should note the importance of protecting privacy.[1] Whenever possible, both USCIS employees and the public should take common sense steps to make communications as private as possible. For example, USCIS employees should:
-
Avoid projecting so that others in the room can clearly hear conversations that involve personal information; and
-
For in-person encounters about case-specific inquiries, ensure that inquirers are given sufficient space so that documents presented are not on display for others to see.
USCIS must strike a balance between quickly and accurately assisting large groups of benefit requestors on the one hand, and protecting the privacy of all persons on the other. USCIS employees and benefit requestors must work together to strike this balance as best as possible. Persons contacting USCIS regarding a matter with heightened privacy considerations should work with USCIS employees to ensure that their privacy is protected.
B. Electronic Devices
Visitors must abide by applicable policies established by the facility in which they are seeking services. Depending on the facility’s policies, visitors may be permitted to possess cell phones, personal digital assistants, tablets, laptops, and other electronic devices.
No one may photograph or record at a USCIS office except when observing naturalization or citizenship ceremonies. In addition, phones should be silenced while in the waiting area and any conversations should be kept to a low level so as not to disrupt others. Phones should be turned off during interviews or while being served by USCIS staff at the information counter.
To ensure successful implementation of this guidance, USCIS field offices are encouraged to:
-
Ensure all USCIS federal and contract employees are aware of the cell phone usage policies;
-
Ensure all visitors are informed of the cell phone usage policies; and
-
Display posters and signage regarding this guidance in common areas.
Footnote
[^ 1] See Chapter 7, Privacy and Confidentiality [1 USCIS-PM A.7].
Chapter 9 - Feedback, Complaints, and Reporting Misconduct
A. Feedback
1. USCIS Contact Center
USCIS conducts telephone interviews every month with callers who have used the USCIS Contact Center within the past 90 days. USCIS may contract with a private company to execute this task. The interviews that are conducted represent a statistically valid sample.
2. In-Person Appointments
Field offices may provide feedback forms in their waiting rooms. If such forms are provided, field offices should also provide a place within the office to deposit the feedback forms.
3. USCIS Website
In February 2010, USCIS implemented the American Customer Satisfaction Index (ACSI) Survey on the USCIS website. This recognized instrument is a voluntary, randomized, pop-up, online survey offered to USCIS website users. By participating in this survey, USCIS became part of the E-Government Satisfaction Index and joined more than one hundred other government organizations and agencies that have already implemented this survey and are receiving feedback.
USCIS reviews the results of the survey on a quarterly basis and identifies opportunities to improve the USCIS website. Survey data also informs USCIS where resources might best be used to affect overall satisfaction.
USCIS also reviews a wide assortment of research papers and other products available from the survey administrator to help USCIS in data gathering, analysis, and site improvement activities.
B. Complaints[1]
1. Ways of Submitting Complaints
Complaint in USCIS Office
Persons can make a complaint in a USCIS office by asking to speak to a supervisor. In these situations, a supervisor must be made available within a reasonable amount of time. The supervisor should take the complainant’s name and information about the nature of the complaint. The supervisor should attempt to resolve the issue before the complainant leaves the office.
Submit Written Complaint
Written complaints may include handwritten letters, emails, or faxes.[2]
Contact Office of Inspector General Directly[3]
Contact information for DHS Office of Inspector General (OIG) can be found on both the USCIS website and on the DHS website. OIG contact information must also be displayed in a public area and visible in every USCIS field office.
File Complaint with USCIS Headquarters
USCIS Headquarters (HQ) contact information is provided on USCIS’ website. If the complaint is directed to the wrong directorate or program office, the complaint must be forwarded to the appropriate HQ entity.
Ask to Speak to Contact Center Supervisor
If a caller is dissatisfied with the service he or she received during a call to the USCIS Contact Center, the caller may ask to speak to a supervisor.[4] Both Tier 1 and Tier 2 staff members must transfer the call to a supervisor.
2. Complaints Received
A person should not be expected to know where to first submit a complaint or how to elevate a complaint if they think that their issue has not been adequately addressed. Under no circumstances should a person’s complaint be dismissed or disregarded because the proper process for filing a complaint was not followed. All complaints received must be handled appropriately.
All complaints should be responded to by providing a written response, telephone call, or if applicable, addressing the complaint in person upon submission. The response should explain steps taken to resolve the issue. In cases where the complaint cannot be resolved in a reasonable time, the response should acknowledge the receipt of the complaint, when a resolution is expected, and any additional action the person may take.
Applicants with complaints about being victimized by a person engaged in the unauthorized practice of immigration law (UPIL) should be directed to USCIS’ website where they can find state-by-state reporting information, as well as information on how to report UPIL to the Federal Trade Commission.
C. Reporting Allegations of Misconduct
Benefit requestors and other interested parties should report allegations of misconduct by USCIS employees.[5]
1. Employee Misconduct
Allegations of misconduct by USCIS employee and contractors should be reported immediately to the USCIS Office of Investigations (OI) or the DHS Office of the Inspector General (OIG). Allegations can include, but are not limited to:
-
Fraud, corruption, bribery, and embezzlement;
-
Sexual advances or sexual misconduct;
-
Theft or misuse of funds and theft of government property;
-
Perjury;
-
Physical assault;[6]
-
Unauthorized release of classified or special protected class[7] information;
-
Drug use or possession;
-
Unauthorized use or misuse of sensitive official government databases;
-
Misuse of official position for private gain;
-
Misuse of a government vehicle or property;
-
Failure to properly account for government fund;
-
Unauthorized use or misuse of a government purchase or travel card;
-
Falsification of travel documents; and
-
Falsification of employment application documents.
2. Reporting Employee Misconduct
DHS Office |
Phone and Fax |
|
---|---|---|
USCIS OI |
202-233-2453 (Fax) |
Office of Investigations |
DHS OIG |
Toll-free hotline: 800-323-8603 202-254-4297 (Fax) |
DHS Office of Inspector General, Mail Stop: 0305 |
USCIS OI makes every effort to maintain the confidentiality of informational sources. However, for investigations in which an allegation is substantiated and disciplinary action is proposed, the subject of such investigation is entitled to review documentation and evidence relied upon as the basis for the proposed action.
OI refers matters to DHS OIG for review and investigative determination as required, depending on the nature of the allegations included in the report. If the allegation either does not meet the criteria for referral to DHS OIG or is not accepted by DHS OIG for investigation, OI may resolve the matter by conducting an investigation; referring the matter for an official management inquiry, if appropriate; or referring the matter to the appropriate USCIS manager for information and action as necessary.
As a matter of procedure, OI does not provide a complainant, victim, witness, or subject of a complaint with the initial investigative determination of a complaint, since a disclosure of this nature could adversely impact the investigative process or agency resolution of the alleged behavior.
Any allegation may also be reported by contacting DHS OIG directly either through a local OIG field office,[9] or by one of the methods above.
3. Allegations of Discrimination
Allegations of discrimination based on race, color, religion, sex, sexual orientation, parental status, protected genetic information, national origin, age, or disability should be promptly reported to a USCIS supervisor or to the DHS Office for Civil Rights and Civil Liberties (CRCL).[10] In addition, allegations involving physical assault (such as grabbing, fondling, hitting, or shoving) should be reported to OI or DHS OIG. CRCL’s website also contains detailed information about avenues for filing complaints with different offices and components of DHS.[11]
|
Fax |
|
---|---|---|
202-401-4708 |
U.S. Department of Homeland Security |
D. Reporting Fraud, Abuse, and Scams
Benefit requestors and other interested parties should report fraud, abuse, and scams as indicated on the USCIS Contact Us page.
In addition, immigration fraud can be reported to:
The USCIS website also contains information on common scams and how to avoid scams.
Footnotes
[^ 1] This section specifically addresses complaints that do not involve egregious or criminal misconduct. For information on the Office of Security and Integrity’s policy on reporting criminal and egregious misconduct, see Section C, Reporting Allegations of Misconduct [1 USCIS-PM A.9(C)].
[^ 2] See Appendix: Dissatisfaction with USCIS: Terms and Definitions [1 USCIS-PM A.9, Appendices Tab] for information on where to send complaints.
[^ 3] See Appendix: Dissatisfaction with USCIS: Terms and Definitions [1 USCIS-PM A.9, Appendices Tab] for information on how to contact the OIG.
[^ 4] See Chapter 3, Forms of Assistance, Section C, Telephone [1 USCIS-PM A.3(C)].
[^ 5] USCIS employees are also subject to mandatory reporting requirements for known or suspected misconduct by federal employees and contractors.
[^ 6] Physical assault may include grabbing, fondling, hitting, or shoving.
[^ 7] See Chapter 7, Privacy and Confidentiality [1 USCIS-PM A.7].
[^ 8] Allegations reported directly to the DHS OIG may also be reported through a local DHS OIG field office.
[^ 9] A list of OIG Office of Investigations field offices is available on the DHS OIG’s website.
[^ 10] See the File a Civil Rights Complaint page on the DHS website.
[^ 11] See How to File a Complaint with the Department of Homeland Security.
Part B - Submission of Benefit Requests
Chapter 1 - Purpose and Background
A. Purpose
Those seeking immigration benefits in the United States must generally request benefits by filing the appropriate USCIS form(s) with USCIS.[1] Proper submission of benefit requests provides USCIS the opportunity to determine whether a person is initially eligible for the benefit requested and facilitates an efficient management of requests.[2]
B. Background
With the Immigration Act of 1891, the federal government assumed direct control of inspecting, admitting, rejecting, and processing all immigrants seeking admission to the United States.[3] On January 2, 1892, the Immigration Service opened Ellis Island in New York Harbor. The Immigration Service began collecting arrival manifests from each incoming ship. Inspectors then questioned arrivals about their admissibility and noted their admission or rejection on the manifest records.[4]
Over the years, different federal government departments and offices have adjudicated immigration benefit requests. The process of submitting benefit requests has also changed over time. Today, requestors generally seek benefits from USCIS by submitting specific forms; the forms also help guide requestors in collecting and submitting necessary evidence. USCIS uses forms to establish the record, verify identity, and adjudicate the benefit request.
USCIS is primarily funded by immigration and naturalization benefit request fees charged to applicants and petitioners.[5] Fees collected from individuals and entities filing immigration benefit requests are deposited into the Immigration Examinations Fee Account (IEFA). These fee collections fund the cost of fairly and efficiently adjudicating immigration benefit requests, including those provided without charge to refugee, asylum, and certain other applicants.
Form Types
USCIS adjudicates immigration benefit requests in and outside the United States. The table below provides a list of the major benefits USCIS provides, the corresponding form(s), and corresponding Policy Manual guidance for more information.[6]
Benefit Sought |
Relevant Form(s) |
For More Information |
---|---|---|
Nonimmigrant status |
Petition for a Nonimmigrant Worker (Form I-129) |
Volume 2, Nonimmigrants [2 USCIS-PM] |
Petition for Alien Fiancé(e) (Form I-129F) |
||
Petition for U Nonimmigrant Status (Form I-918) |
||
Petition for Qualifying Family Member of a U-1 Nonimmigrant (Form I-929) |
||
Application to Extend/Change Nonimmigrant Status (Form I-539) |
||
Immigrant status |
Petition for Alien Relative (Form I-130) |
Volume 6, Immigrants [6 USCIS-PM] |
Immigrant Petition for Alien Worker (Form I-140) |
||
Petition for Amerasian, Widow(er), or Special Immigrant (Form I-360) |
||
Immigrant Petition by Alien Investor (Form I-526) |
Volume 6, Immigrants, Part G, Investors [6 USCIS-PM G] |
|
Application to Register Permanent Residence or Adjust Status (Form I-485) |
Volume 7, Adjustment of Status [7 USCIS-PM] |
|
Refugee or asylee status |
Application for Asylum and for Withholding of Removal (Form I-589) |
Volume 4, Refugees [4 USCIS-PM] |
Refugee/Asylee Relative Petition (Form I-730) |
||
Temporary Protected Status |
Application for Temporary Protected Status (Form I-821) |
Volume 3, Protection and Parole [3 USCIS-PM] |
Employment authorization |
Application for Employment Authorization (Form I-765) |
Volume 10, Employment Authorization [10 USCIS-PM] |
Travel authorization (including reentry permit, humanitarian parole, and advance parole document) |
Application for Travel Document (Form I-131) |
Volume 11, Travel and Identity Documents [11 USCIS-PM] |
Citizenship |
Application for Naturalization (Form N-400) |
Volume 12, Citizenship and Naturalization [12 USCIS-PM] |
Application for Certificate of Citizenship (Form N-600) |
Volume 12, Citizenship and Naturalization, Part H, Children of U.S. Citizens [12 USCIS-PM H] |
|
Application for Citizenship and Issuance of Certificate Under Section 322 (Form N-600K) |
||
Overcoming Inadmissibility |
Application for Permission to Reapply for Admission into the U.S. After Deportation or Removal (Form I-212) |
Volume 9, Waivers and Other Forms of Relief [9 USCIS-PM] |
Application for Waiver of Grounds of Inadmissibility (Form I-601) |
||
Application by Refugee for Waiver of Grounds of Excludability (Form I-602) |
||
Application for Advance Permission to Enter as a Nonimmigrant (Form I-192) |
||
Application for Waiver of Grounds of Inadmissibility (Form I-690) |
Each USCIS form has accompanying instructions that explain how to complete the form, as well as the necessary supporting evidence and fees that must be submitted with the completed form.[7] In addition, some forms may require the submission of biometric information and an additional fee for biometric processing.[8]
C. Legal Authorities
-
INA 103 - Powers and duties of the Secretary, Under Secretary, and Attorney General
-
8 CFR 103.2 - Submission and adjudication of benefit requests
-
8 CFR 103.7 - Fees
Footnotes
[^ 1] See 8 CFR 103.2(a)(1).
[^ 2] The terms “benefit request” and “immigration benefit request,” as used in this Part, include, but are not limited to, all requests funded by the Immigration Examinations Fee Account (IEFA). These terms may also refer to forms or requests not directly resulting in an immigration benefit, such as those resulting in an exercise of prosecutorial discretion by DHS.
[^ 3] See Pub. L. 55-551 (March 3, 1891).
[^ 4] See the USCIS History and Genealogy website for additional information. See Overview of Legacy Immigration and Naturalization Service (INS) History (PDF, 284.73 KB).
[^ 5] See INA 286(m). See 8 CFR 103.7(c).
[^ 6] See the USCIS website for a complete list of all USCIS forms and form instructions.
[^ 7] See 8 CFR 103.2. For a list of all forms and form instructions, see the USCIS Forms page.
[^ 8] See 8 CFR 103.2(a)(1).
Chapter 2 - Signatures
A. Signature Requirement
USCIS requires a valid signature on applications, petitions, requests, and certain other documents filed with USCIS.[1] Except as otherwise specifically authorized, a benefit requestor must personally sign his or her own request before filing it with USCIS.[2]
In order to maintain the integrity of the immigration benefit system and validate the identity of benefit requestors, USCIS rejects any benefit request with an improper signature and returns it to the requestor.[3] USCIS does not provide an opportunity to correct (or cure) a deficient signature. The benefit requestor, however, may resubmit the benefit request with a valid signature. As long as all other filing requirements are met, including payment of the required fee, USCIS may accept the resubmitted benefit request.
If USCIS accepts a request for adjudication and later determines that it has a deficient signature, USCIS denies the request. If USCIS needs additional information to confirm that a person[4] is authorized to sign on behalf of another person, corporation, or other legal entity, USCIS may issue either a Request for Evidence (RFE) or a Notice of Intent to Deny (NOID) to confirm that such signature authority existed at the time the document was submitted.
If USCIS issues a denial based on a deficient signature or unauthorized power of attorney (POA), the benefit requestor retains any motion and appeal rights associated with the applicable form.[5]
B. Valid Signature
A valid signature consists of any handwritten mark or sign made by a person to signify the following:
-
The person knows of the content of the request and any supporting documents;
-
The person has reviewed and approves of any information contained in such request and any supporting documents; and
-
The person certifies under penalty of perjury that the request and any other supporting documents are true and correct.
A valid signature does not need to be legible or in English, and may be abbreviated as long as this is consistent with how the person signing normally signs his or her name. A valid signature does not have to be in cursive handwriting. A person may use an “X” or similar mark as his or her signature. A signature is valid even if the original signature on the document is photocopied, scanned, faxed, or similarly reproduced. Regardless of how it is transmitted to USCIS, the copy must be of an original document containing an original handwritten signature, unless otherwise specified. The regulations do not require that the person signing submit an “original” or “wet ink” signature on a petition, application, or other request to USCIS.
When determining whether a signature is acceptable, officers should review any applicable regulations, form instructions, and policy to ensure that the signature on a particular benefit request is proper. USCIS does not accept signatures created by a typewriter, word processor, stamp, auto-pen, or similar device.
For benefit requests filed electronically as permitted by form instructions, USCIS accepts signatures in an electronic format. Benefit requestors must follow the instructions provided to properly sign electronically. [6]
Acceptable |
Unacceptable |
---|---|
|
|
C. Who May Sign
The signer of a benefit request or any document submitted to USCIS affirms that the signer has authority to sign the document, has knowledge of the facts being represented in the document, and attests to the veracity of the facts and claims made in the document. Signers may be held accountable for any fraud or material misrepresentation associated with the benefit request.
For any particular benefit request, USCIS may specify the signature requirements, as well as related evidentiary requirements, to establish signatory authority. Benefit requestors should refer to the benefit request and any accompanying instructions for benefit-specific information on signature requirements.
1. Benefit Requestors Themselves
In general, any person requesting an immigration benefit must sign their own immigration benefit request, and any other associated documents, before filing it with USCIS.[10] Therefore, corporations or other legal entities, attorneys, accredited representatives, agents,[11] preparers, and interpreters generally may not sign a benefit request, or associated documents, for a requestor.
By signing the benefit request, the requestor certifies under penalty of perjury that the benefit request, and all evidence submitted with it, either at or after the time of filing, is true and correct.
2. Parents and Legal Guardians of Requestors
A parent may sign a benefit request on behalf of a child who is under 14 years of age.[12] Children 14 years of age or older must sign on their own behalf. If a parent signs on behalf of a child, the parent must submit a birth certificate or adoption decree to establish the parent-child relationship.
A legal guardian[13] may also sign a benefit request on behalf of a child who is under 14 years of age, as well as for a mentally incompetent person of any age.[14]
By signing the benefit request, the parent or guardian certifies under penalty of perjury that the benefit request, and all evidence submitted with it, either at or after the time of filing, is true and correct.
Legal Guardian
A legal guardian is a person who a proper court or public authority has designated as the benefit requestor’s legal guardian or surrogate and who is authorized to exercise legal authority over the requestor’s affairs. Legal guardian does not include persons who were not appointed by the proper court or public authority, even if they have a legitimate interest in the legal affairs of the child or incapacitated adult, are acting in loco parentis, or are a family member.[15]
USCIS requires documentation to establish the legal guardian’s authority to sign a benefit request on behalf of the child or mentally incompetent requestor. Acceptable documentation includes, but is not limited to, official letters of guardianship or other orders issued by a court or government agency legally authorized to make such appointment under the law governing the place where the child or incapacitated requestor resides.
Designated Representative
For purposes of naturalization, a designated representative may also sign for the applicant who is unable to understand or communicate an understanding of the Oath of Allegiance because of a physical or developmental disability or mental impairment.[16]
Durable Power of Attorney Requirements
USCIS accepts a durable POA or similar legally binding document only in the case of an incapacitated adult. A formal court appointment is not necessary if a person signs on behalf of an incapacitated adult under the authority of a POA.
A POA is a written authorization to act on another’s behalf in private or business affairs or other legal matters. A durable POA is a contract signed while a person is still competent that assigns power of attorney in the event that the person becomes incapacitated at some point in the future.[17]
In most cases, the language of the durable POA specifies steps that need to be taken in order for the durable POA to take effect. To assess whether a durable POA is valid and in effect, USCIS generally requires, at minimum, a copy of the durable POA, as well as evidence showing that the steps required for the durable POA to take effect have occurred. Often this evidence includes a physician’s statement indicating that the durable POA is in effect as the result of the incapacitated adult’s disability. USCIS accepts a durable POA only if it complies with the state laws where it was executed. It is the burden of the person making the request to demonstrate that a durable POA is valid and in effect under the applicable state law.
If the person providing signatory authority under the POA is also acting as the incapacitated benefit requestor’s attorney or authorized representative for purposes of appearing before DHS, the person must submit a Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28), and meet other regulatory requirements.[18]
3. Authorized Signers for Corporations or Other Legal Entities[19]
Under the Immigration and Nationality Act (INA), corporations and other legal entities, such as limited partnerships (LP), professional corporations (PC or P.C.), limited liability companies (LLC), or limited liability partnerships (LLP), may file certain requests with USCIS. Such a filing may include a request to classify a noncitizen as an immigrant or nonimmigrant under a specific employment-based category, for example.
Benefit requests filed with USCIS by such legal entities may only be signed by a person with the authority to sign on behalf of the petitioning entity. Authorized persons may include, but are not limited to:
-
An executive officer of a corporation or P.C. with authority to act on behalf of the corporate entity and legally bind and commit the corporate entity in all matters (for example, chief executive officer, president, or vice president);
-
A managing partner or managing member of an LLC or LLP;
-
A duly authorized partner of a partnership;
-
An attorney employed in an employer-employee relationship by a corporation or other legal entity as its legal representative, or as a legal representative by the corporation or other legal entity’s legal department in an employer-employee relationship (for example, in-house counsel, or other attorney employees or contractors);
-
A person employed within the entity’s human resources, human capital, employee relations, personnel, or similar department who is authorized to sign legal documents on behalf of the entity;
-
An executor or administrator of an estate;
-
A trustee of a trust or a duly appointed conservator; or
-
Any other employee[20] of the entity who has the authority to legally bind and commit the entity to the terms and conditions attached to the specific request and attestations made in the request.
A sole proprietor is the only person authorized to sign a request filed on behalf of a sole proprietorship.
In all cases involving authorized signers for corporations or other legal entities, the benefit request must contain a statement by the person signing the request, affirming that:
-
He or she has the legal authority to file the request on the petitioning employer’s behalf;
-
The employer is aware of all of the facts stated in the request; and
-
Such factual statements are complete, true, and correct.
If such affirmation if the form itself, a signature by the person filing the form may be sufficient to meet this requirement. If the affirmation specified above is not contained in the form, the authorized signer must provide a separate statement affirming that he or she has the authority to legally bind the corporation or other legal entity.
If USCIS has reason to doubt a person’s authority to sign or act on behalf of a corporation or other legal entity, USCIS may request evidence that demonstrates the person has the requisite legal authority to sign the request. Such requested evidence may include, but is not limited to:
-
Bylaws;
-
Articles of organization;
-
A letter reflecting delegation of such authority from a corporate officer or board member;
-
Board of director’s minutes reflecting the grant or the board’s approval of such authority being exercised by the person in question; or
-
A similar document that indicates the employee may legally bind the corporation or other legal entity with his or her signature.
D. Clarification Regarding Form G-28
An attorney or accredited representative may sign and submit a Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) to certify that the person, corporation, or other legal entity named in the Form G-28 has authorized the attorney or representative to act on the person’s or legal entity’s behalf in front of Department of Homeland Security (DHS). However, a Form G-28 by itself does not authorize a representative to sign a request or other document on behalf of a person or legal entity. Further, an attorney or representative may not use a POA to sign a Form G-28 on behalf of a person or legal entity to authorize his or her own appearance.
Footnotes
[^ 1] Except as specifically authorized in the regulations, this guidance, or in the respective form instructions, an applicant, petitioner, or requestor must personally sign his or her own request before filing it with USCIS.
[^ 2] See 8 CFR 103.2(a)(2). The term “request” refers to any written request for an immigration benefit, service, or request for action, whether the request is submitted on an Office of Management and Budget-approved form or is an informal written request submitted to USCIS. The term also includes any form supplements and any other materials that require the signature of the requestor. An example of an exception to this requirement is for naturalization applications where a designated representative may sign an application on behalf of an applicant who otherwise qualifies for an oath waiver under INA 337(a) because of a physical or developmental disability or mental impairment. For more information, see Volume 12, Citizenship and Naturalization, Part J, Oath of Allegiance, Chapter 3, Oath of Allegiance Modifications and Waivers, Section C, Waiver of the Oath [12 USCIS-PM J.3(C)].
[^ 3] See 8 CFR 103.2(a)(7).
[^ 4] Unless otherwise specified, the term “person” as used in the Policy Manual refers to a natural person.
[^ 5] A rejection of a filing with USCIS may not be appealed, see 8 CFR 103.2(a)(7)(iii).
[^ 6] See 8 CFR 103.2(a)(2).
[^ 7] Must contain evidence (such as a physician's statement) indicating that the durable POA is in effect as a result of the person's disability.
[^ 8] For benefit requests filed electronically as permitted by form instructions, USCIS accepts signatures in an electronic format. Benefit requestors must follow the instructions provided to properly sign electronically, see 8 CFR 103.2(a)(2).
[^ 9] In certain instances, a stamped signature may be allowed as provided by the form instructions. For example, a health department physician who is acting as a blanket-designated civil surgeon and submitting a vaccination assessment for a refugee adjusting status on the Report of Immigration Medical Examination and Vaccination Record (Form I-693) may provide an original (handwritten) or stamped signature, as long as it is the signature of the health department physician. See Form I-693 instructions (PDF, 453.66 KB). See Volume 8, Admissibility, Part B, Health-Related Grounds of Inadmissibility, Chapter 4, Review of Medical Examination Documentation, Section C, Documentation Completed by Civil Surgeon, Subsection 3, Signatures [8 USCIS-PM B.4(C)(3)]. For benefit requests filed electronically as permitted by form instructions, USCIS accepts signatures in an electronic format. Benefit requestors must follow the instructions provided to properly sign electronically, see 8 CFR 103.2(a)(2).
[^ 10] See 8 CFR 103.2(a)(2).
[^ 11] This Part does not address agents who are filing as a petitioner on behalf of a corporation or other legal entity seeking an H, O, or P nonimmigrant worker, as provided in 8 CFR 214.2(h)(2)(i)(F), 8 CFR 214.2(h)(5)(i)(A), 8 CFR 214.2(h)(6)(iii)(B), 8 CFR 214.2(o)(2)(i), 8 CFR 214.2(o)(2)(iv)(E), 8 CFR 214.2(p)(2)(i), and 8 CFR 214.2(p)(2)(iv)(E). See the governing regulations and Petition for a Nonimmigrant Worker (Form I-129) instructions for more information on the applicable signature requirements for these particular nonimmigrant categories.
[^ 12] See 8 CFR 103.2(a)(2).
[^ 13] If a legal guardian signs on behalf of a requestor, the legal guardian must submit evidence to establish legal guardianship.
[^ 14] See 8 CFR 103.2(a)(2).
[^ 15] Different jurisdictions may have different terms for legal guardians, including conservator, committee, tutor, or other titles designating a duly appointed surrogate.
[^ 16] See Volume 12, Citizenship and Naturalization, Part J, Oath of Allegiance, Chapter 3, Oath of Allegiance Modifications and Waivers, Section C, Waiver of the Oath, Subsection 2, Legal Guardian, Surrogate, or Designated Representative [12 USCIS-PM J.3(C)(2)].
[^ 17] This scenario specifically describes a “springing” durable POA (as distinguished from an “immediate” durable POA). See Black’s Law Dictionary, 2nd Ed. (“durable power of attorney”). Because USCIS only accepts durable POAs that are in effect as the result of an incapacitated adult’s disability, a valid durable POA accepted by USCIS would necessarily be springing.
[^ 19] This section does not address agents who are permitted to act as a petitioner for a corporation or other legal entity seeking an H, O, or P nonimmigrant worker, as provided in 8 CFR 214.2(h)(2)(i)(F), (h)(5)(i)(A), (h)(6)(iii)(B), (o)(2)(i), (o)(2)(iv)(E), (p)(2)(i), or (p)(2)(iv)(E). See the particular nonimmigrant category’s regulations or the Petition for a Nonimmigrant Worker (Form I-129) instructions for the requirements governing the scope of an agent’s authority in those contexts.
[^ 20] The person’s title or department within the corporation or other legal entity is not determinative.
Chapter 3 - Fees
Chapter 4 - Fee Waivers
Chapter 5 - Interpreters and Preparers
If an interpreter assists the benefit requestor in reading the instructions and questions on a benefit request, the interpreter must provide his or her contact information, sign, and date the benefit request in the section indicated.
If a preparer assists the benefit requestor in completing his or her benefit request, the preparer and any other person who assisted in completing the benefit request must provide their contact information, sign, and date the benefit request in the section indicated.
If the person who helped interpret or prepare the benefit request is an attorney or accredited representative, he or she must determine if the level of involvement and rules of professional responsibility require him or her to submit a signed and completed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) with the benefit request. If the person intends to represent the benefit requestor before USCIS, he or she must submit a completed Form G-28. The attorney or accredited representative of the benefit requestor cannot serve as an interpreter during the interview.[1]
Footnote
[^ 1] Officers cannot make exceptions for good cause.
Chapter 6 - Submitting Requests
A. How to Submit
1. Traditional Mail
Benefit requestors may use traditional mail to file benefit requests involving fees with a USCIS Lockbox.[1] Benefit requestors should refer to the form instructions and USCIS website for more information on where and how to submit a particular benefit request, and what initial evidence is expected.[2]
Assembling and Submitting Application Package
USCIS recommends that benefit requesters assemble their benefit request packages in the order indicated for that particular benefit.[3]
Application Intake Inquiries
Requestors who have questions or concerns about the intake of a benefit request should route their inquiries as indicated on the USCIS Contact Us webpage.
2. Electronic Submission
Some USCIS forms are available for submission online. Filing online allows users to:
-
Set up and manage accounts;
-
Submit benefit requests and supporting documents electronically;
-
Manage and link paper-filed benefits with an online account;
-
Receive and respond to notices and decisions electronically;
-
Make payments online; and
-
Access real-time information about the status of cases.
Information entered electronically in anticipation of filing online is saved for 30 days from the last time a person worked on the request. USCIS cannot accept the benefit request until the person completes the electronic submission process.
If a benefit requestor files a benefit request online, USCIS notifies the person electronically of any notices or decisions. In general, USCIS does not issue paper notices or decisions for electronically-filed benefit requests. However, an online filer may request that USCIS mail paper notices. USCIS may also, in its discretion, decide to issue a paper notice.[4]
B. Intake Processing
Once USCIS receives a benefit request, including an appeal or motion, USCIS assesses whether the request meets the minimum requirements for USCIS to accept it. If all minimum requirements (including submission of initial evidence for intake purposes) for acceptance are not met, USCIS rejects the benefit request for improper filing.[5]
USCIS only begins to adjudicate a benefit request after USCIS accepts the request, processes any required fees, and issues a receipt notice (or date stamp, where applicable) to reflect the date of physical or electronic receipt.[6] USCIS does not consider benefit requests that are rejected to be properly filed.[7]
In order for USCIS to accept a benefit request, a submission must satisfy all applicable acceptance criteria.[8] USCIS generally accepts the request if it contains:
-
A complete, properly executed form, with a proper signature;
-
The correct fees;[9] and
-
The required initial evidence for intake purposes, as directed by the form instructions.[10]
USCIS rejects benefit requests that do not meet these minimum requirements. Reasons for rejection may include, but are not limited to:
-
Incomplete benefit request;[11]
-
Improper signature or no signature;[12]
-
Use of an outdated version of a USCIS form at time of submission;
-
Principal application error (USCIS cannot process derivative or dependent applications if the related principal application is in error); and
-
Incorrect fee, including missing fees or fees in the wrong amount.[13]
In addition, USCIS rejects benefit requests for an immigrant visa if an immigrant visa is not immediately available to the applicant.[14]
The rejection of a filing with USCIS may not be appealed.[15] However, rejections do not preclude a benefit requestor from resubmitting a corrected benefit request. If the benefit requestor later resubmits a previously rejected, corrected benefit request, USCIS processes the case anew, without prejudice.[16] The rejected case does not retain its original receipt date when resubmitted.
USCIS requires new fees with any new benefit request; a new filing date also generally applies.[17]
Effect of Returned Payment
If, subsequent to receipting, a check or other financial instrument submitted for payment is returned as not payable, USCIS re-submits the payment to the remitter institution one time. If the instrument used to pay the fee is returned as non-payable a second time, USCIS rejects the benefit request as improperly filed and the receipt date is forfeited. USCIS assesses a $30 returned check fee and pursues collection using administrative debt collection procedures. A rejection of a filing with USCIS may not be appealed.[18]
Returned Payment for an Underlying Petition
If a dishonored payment rejection occurs on an underlying petition that is accompanied by other filings that are dependent on the filing that is rejected, such as an Immigrant Petition for an Alien Worker (Form I-140) concurrently filed with an Application to Register Permanent Residence or Adjust Status (Form I-485), even though the other filings’ fees may be honored, USCIS administratively closes the dependent filings and refunds the fees.
Returned Payment for Premium Processing Service Requests
If a premium processing fee for a Request for Premium Processing Service (Form I-907) is dishonored when it is filed at the same time as a Petition for Nonimmigrant Worker (Form I-129) or Immigrant Petition for Alien Workers (Form I-140), USCIS rejects the entire filing.
If USCIS has approved the petition and any fee, including one fee of a multiple fee filing, is dishonored, USCIS may revoke the approval. In this case, USCIS issues a Notice of Intent to Revoke (NOIR) to the requestor. If the requestor does not rectify the dishonored payment within the requisite NOIR time period, USCIS revokes the approval and retains (and does not refund) any fee that was honored in association with the approval.
For example, if the Form I-907 fee is dishonored after USCIS approves an associated Form I-140, USCIS revokes the Form I-140 approval (assuming the NOIR time period has passed without sufficient response). USCIS then retains the Form I-140 fee, administratively closes the Form I-485, and refunds the Form I-485 fee.
Response to a NOIR
If the benefit request was approved by USCIS, the approval may be revoked upon notice.[19] If the approved benefit request requires multiple fees, approval may be revoked if any fee submitted is not honored. USCIS may retain (and not refund) other fees that were paid for a benefit request that is revoked because of a dishonored fee payment.
To sufficiently respond to a NOIR, the requestor must demonstrate that the payment was honored or that it was rejected by USCIS by mistake.[20] If USCIS issues a NOIR and the request does not return sufficient evidence to reinstate the case to pending status, then USCIS reopens and denies the request. USCIS then sends a notice to the applicant informing him or her that USCIS has revoked the approval and denied the benefit request. In contrast with the rejection of a filing, a revocation of an approval due to a dishonored fee may be appealed to the USCIS Administrative Appeals Office.[21] All revocation notices instruct the requestor on how they may appeal the revocation or denial due to a dishonored payment.[22]
If USCIS does not have the authority to revoke or reopen and deny the benefit request, USCIS annotates the file to indicate that USCIS never received payment and notifies the benefit requestor of the payment deficiency. USCIS then notifies the applicant or petitioner that there is a payment deficiency. The officer should also request local counsel assess the applicant’s actions and intentions and assist in determining the appropriate next steps on a per case basis.
If USCIS already denied or revoked the benefit request for other reasons, or determined that the requestor abandoned the benefit request, the existence of a dishonored payment does not affect that decision. USCIS pursues collection of all payment deficiencies, regardless of the outcome of adjudication.
C. Date of Receipt
USCIS considers a benefit request “received” on the date it is physically or electronically received. This date is also known as the submission or filing date,[23] and is listed on the receipt notice, or the date stamp (where applicable), issued by USCIS. Requestors may only obtain a date of receipt or filing date if their submission is accepted at the proper location, as designated on the USCIS website. USCIS does not assign a date of receipt or filing date to benefit requests that are rejected.[24]
The date of receipt may impact eligibility for immigration benefits. For example, USCIS uses the date of receipt to determine whether an appeal, Application for Temporary Protected Status (Form I-821), or Petition for a Nonimmigrant Worker (Form I-129) should be rejected for failure to timely file or because an annual numerical limit has been reached.
The date of receipt may also be significant for purposes of seeking lawful permanent residence; the filing date is referred to as the priority date for an approved immigrant visa petition in certain preference categories.[25] For approved petitions in preference categories that are not current, the priority date dictates how soon the beneficiary may file for permanent residence. Similarly, the filing date establishes the statutory period for various benefits, including naturalization.
D. Filing Periods Ending on Weekends or Federal Holidays
Benefit requestors must file a benefit request within the period for filing, if applicable, as prescribed by statute, regulation, and form instructions. This includes filing with USCIS before a certain time period ends or event occurs, such as before a period of lawful status ends or an individual reaches a certain age. For example, petitioners for special immigrant juvenile classification must file a Petition for Amerasian, Widow(er), or Special Immigrant (Form I-360) before their 21st birthday.[26] As another example, principal refugees and asylees seeking to request follow-to-join immigration benefits for qualifying family members must file a Refugee/Asylee Relative Petition (Form I-730) for each member within 2 years of the refugee’s admission to the United States as a refugee or the asylee’s grant of asylum.[27]
USCIS does not accept paper-based applications or petitions on Saturdays, Sundays, or federal holidays.[28] Therefore, when the last day of the filing period for a paper benefit request falls on a Saturday, Sunday, or federal holiday, USCIS applies the regulatory definition of day[29] and extends the deadline for filing until the end of the next business day that is not a Saturday, Sunday, or federal holiday.[30] In these situations, while the receipt date will continue to reflect the date USCIS physically received the request, USCIS considers the benefit request to have been timely filed.[31]
The determination of whether a benefit request was timely submitted is not a criterion for acceptance; rather, it is part of the eligibility determination for the benefit request that an officer makes at the time of adjudication. Therefore, USCIS does not reject filings at intake due to missed deadlines.
USCIS considers electronically submitted benefit requests to be received immediately upon submission. Therefore, electronic filings are not affected by the fact that USCIS does not accept deliveries on Saturdays, Sundays, or federal holidays, and USCIS does not apply the regulatory definition of day to extend the filing period for benefit requests filed electronically.[32]
Footnotes
[^ 1] Registration for Classification as a Refugee (Form I-590) must be completed with the assistance of the Resettlement Support Center (RSC) staff overseas after a referral to the U.S. Refugee Admissions Program (USRAP), and cannot be completed independently by a benefit requestor. As such, any information in this section regarding submitting or filing a benefit request does not apply to Form I-590. For more information, see the Refugees USCIS web page.
[^ 2] See 8 CFR 103.2(b)(8)(ii). A benefit requestor may need to provide additional evidence to establish eligibility for the benefit sought at the time of an interview or in response to a Request for Evidence (RFE).
[^ 3] For tips on filing applications with USCIS, see General Tips on Assembling Applications for Mailing and Lockbox Facility Filing Tips.
[^ 4] See 8 CFR 103.2(b)(19)(ii)(B).
[^ 5] See 8 CFR 103.2.
[^ 6] See Section C, Date of Receipt [1 USCIS-PM B.6(C)].
[^ 7] See 8 CFR 103.2(a)(7).
[^ 8] See 8 CFR 103.2(a). Other regulations in Title 8 of the CFR may impose filing requirements specific to the request type.
[^ 9] See 8 CFR 103.7(a)(1). For information on fee waivers, see Request for Fee Waiver (Form I-912). For information on reduced fees, see Request for Reduced Fee (Form I-942).
[^ 10] For example, family-based or employment-based adjustment of status categories where an Affidavit of Support (Form I-864), if required, is submitted with the Application to Register Permanent Residence or Adjust Status (Form I-485).
[^ 11] See 8 CFR 103.2(b)(1). Each benefit request must be properly completed and filed with all initial evidence required by applicable regulations and other USCIS instructions. Benefit requestors can determine which fields are required based on the form type and form instructions.
[^ 12] See 8 CFR 103.2(a)(2).
[^ 13] See 8 CFR 103.2(a). See 8 CFR 103.2(a)(1) (for location), 8 CFR 103.2(a)(7)(i) (for filing fee and signature), and 8 CFR 245.2(a)(2)(i) (available visas).
[^ 14] For more information, see Volume 7, Adjustment of Status, Part A, Adjustment of Status Policies and Procedures, Chapter 3, Filing Instructions, Section B, Definition of Properly Filed, Subsection 4, Visa Availability Requirement [7 USCIS-PM A.3(B)(4)].
[^ 15] See 8 CFR 103.2(a)(7)(iii).
[^ 16] USCIS treats the benefit request as if the requestor had not previously submitted it.
[^ 17] Some exceptions may apply. For example, see Volume 7, Adjustment of Status, Part A, Adjustment of Status Policies and Procedures, Chapter 6, Adjudicative Review, Section C, Verify Visa Availability, Subsection 3, Priority dates [7 USCIS-PM A.6(C)(3)]. See 8 CFR 204.2(h).
[^ 18] See 8 CFR 103.2(a)(7)(iii).
[^ 19] See 8 CFR 205.2.
[^ 20] Otherwise, USCIS considers the requestor to have failed to file the required fees. See 8 CFR 103.2(a)(1).
[^ 21] In accordance with 8 CFR 103.3 and the applicable form instructions.
[^ 22] See 8 CFR 103.3.
[^ 23] The Registration for Classification as Refugee (Form I-590 (PDF, 691.55 KB)) is deemed filed on the date of interview with the USCIS refugee officer. USCIS does not apply a date stamp and does not issue a receipt notice.
[^ 24] See 8 CFR 103.2(a)(7)(ii).
[^ 25] For more information, see Volume 7, Adjustment of Status, Part A, Adjustment of Status Policies and Procedures, Chapter 6, Adjudicative Review, Section C, Verify Visa Availability, Subsection 3, Priority Dates [7 USCIS-PM A.6(C)(3)] and the USCIS’ webpage on Visa Availability and Priority Dates.
[^ 26] See 8 CFR 204.11(b)(1).
[^ 27] See 8 CFR 207.7(d) and 8 CFR. 208.21(d).
[^ 28] See the U.S. Office of Personnel Management’s website for a list of federal holidays.
[^ 29] See 8 CFR 1.2 (“when computing the period of time for taking any action provided in this chapter including the taking of an appeal, shall include Saturdays, Sundays, and legal holidays, except that when the last day of the period computed falls on a Saturday, Sunday, or a legal holiday, the period shall run until the end of the next day which is not a Saturday, Sunday, or a legal holiday.”). For example, in the case of an individual who applies for adjustment of status on the basis of eligibility as a T or U nonimmigrant, if the last day before the expiration date of T or U nonimmigrant status occurs on a Saturday, Sunday, or federal holiday, the applicant has until the end of the next business day after the Saturday, Sunday, or federal holiday for USCIS to physically receive their properly filed and receipted application. See 8 CFR 103.2(a)(7)(ii) (properly filed and receipted), 8 CFR 245.24(b)(2)(ii) (pertaining to U nonimmigrant eligibility for adjustment of status) and 8 CFR 245.23(a)(2)(ii) (pertaining to T nonimmigrant eligibility for adjustment of status).
[^ 30] The definitions in 8 CFR 1.2 generally apply to all benefit requests in 8 CFR Chapter I unless the statutes or regulations for the specific benefit request contain provisions that supersede those definitions. Certain immigration benefits, such as asylum applications, are governed by different regulations and procedures regarding Requests for Evidence, Notices of Intent to Deny, denials, and terminations. Therefore, the guidance in this Part does not apply to those immigration benefits governed by different regulations. For example, 8 CFR 1.2 does not apply to calculating the 1-year filing deadline for asylum, because it is superseded by 8 CFR 208.4(a)(2).
[^ 31] As provided under 8 CFR 103.2(a)(7)(i).
[^ 32] Regulations at 8 CFR 103.2(a)(7)(i) state, “USCIS will consider a benefit request received and will record the receipt date as of the actual date of receipt at the location designated for filing such benefit request whether electronically or in paper format.” In addition, see Volume 1, General Policies and Procedures, Part B, Submission of Benefit Requests, Chapter 6, Submitting Requests, Section A, How to Submit [1 USCIS PM B.6(A)].
Part C - Biometrics Collection and Security Checks
Chapter 1 - Purpose and Background
A. Purpose
As part of its administration of immigration benefits, USCIS has the general authority to require and collect biometrics, which include fingerprints, photographs, and digital signatures, from any person[1] seeking any immigration or naturalization benefit or request.[2]
B. Background
Biometrics collection allows USCIS to verify a person’s identity, produce secure documents, and facilitate required criminal and national security background checks to protect national security and public safety, as well as to ensure that the person is eligible for the benefit sought. Biometrics collection and security checks enhance national security and protect the integrity of the immigration process by ensuring that USCIS only grants benefits to eligible requestors.
In addition, depending on the particular application, petition, or request filed, USCIS conducts security checks, which may include conducting fingerprint-based background checks, requesting a name check from the Federal Bureau of Investigation (FBI), and other DHS or inter-agency security checks.
USCIS promotes national security and public safety by conducting screening and vetting in all immigration programs. Screening and vetting standards include those needed for identity verification, which is crucial to protect against fraud and help USCIS determine if a person is eligible to receive an immigration benefit. Historically, USCIS collected biometrics (including photographs) for background and security checks. Presently, biometrics are also stored and used to verify a person’s identity in subsequent encounters with DHS.
C. Legal Authorities
-
8 CFR 103.16 – Collection, use, and storage of biometric information
-
8 CFR 103.2 – Submission and adjudication of benefit requests
-
INA 105 – Liaison with internal security officers
-
INA 335; 8 CFR 335.1; 8 CFR 335.2 – Investigation and examination of applicants for naturalization
Footnotes
[^ 1] The term person includes any applicant, petitioner, beneficiary, sponsor, derivative, requestor, or person filing or associated with a benefit request.
[^ 2] The term biometrics refers to “the measurable biological (anatomical and physiological) or behavioral characteristics of a natural person, including the person’s fingerprints, photograph, or signature.”
Chapter 2 - Biometrics Collection
A. Biometric Services Appointments
After a person files an application, petition, or other benefit request, USCIS may schedule a biometric services appointment at a local Application Support Center (ASC).[1] The appointment notice indicates the date, time, and location of the appointment. The person submitting biometrics should bring the appointment notice and valid, unexpired photo identification (for example, Permanent Resident Card (Form I-551), passport, or driver’s license), or other identity documentation[2] as authorized by USCIS to the appointment.
USCIS considers a person to have abandoned an application, petition, or request if the person fails to appear for the biometric services appointment unless, by the appointment time, USCIS receives a change of address or rescheduling request that it concludes warrants excusing the failure to appear.[3]
1. Timely Requests to Reschedule
Benefit requestors[4] who need to reschedule a biometric services appointment should follow the instructions provided in the appointment notice. USCIS only accepts rescheduling requests made through a myUSCIS online account or to the USCIS Contact Center and does not accept requests to reschedule submitted by mail or in person at a USCIS office.[5]
An authorized representative with a properly filed Notice of Entry of Appearance as Attorney or Accredited Representative (Form G-28) may also request to reschedule an appointment on behalf of their client through a myUSCIS online account or the USCIS Contact Center.
Any person required to appear for a biometric services appointment may, before the scheduled date and time, request that USCIS reschedule the appointment for good cause.[6] For the purposes of determining whether to grant a biometric services appointment reschedule request, good cause exists when the benefit requestor provides a sufficient reason for their inability to appear on the scheduled date.
Sufficient reasons may include, but are not limited to:
-
Illness, medical appointment, or hospitalization;
-
Previously planned travel;
-
Significant life events such as a wedding, funeral, or graduation ceremony;
-
Inability to obtain transportation to the appointment location;
-
Inability to obtain leave from employment or caregiver responsibilities; and
-
Late delivered or undelivered biometric services appointment notice.[7]
2. Missed Biometric Services Appointments[8]
In accordance with regulations, USCIS considers a benefit request abandoned and denied[9] if the benefit requestor fails to appear for a biometric services appointment unless, by the appointment time, USCIS receives a notice of a change of address or a request to reschedule the appointment that USCIS concludes warrants excusing the failure to appear.[10]
Applicants who have filed an Application for Asylum and for Withholding of Removal (Form I-589) who fail to comply with fingerprint processing without good cause will not have their applications denied for abandonment. Instead, USCIS may dismiss[11] the asylum application if the applicant is in lawful immigration status or paroled, or refer the application to an immigration judge if the applicant is not in lawful immigration status or paroled.
Timely Notice of Change of Address
Before USCIS denies a benefit request for abandonment, USCIS reviews the record of proceeding and relevant systems for evidence of a notice of a change of address.[12] USCIS reschedules the biometric services appointment when a change of address is received by the appointment time.
Timely Request to Reschedule
Before denying for abandonment, USCIS reviews the record of proceeding and relevant systems for reschedule requests. USCIS reschedules the biometric services appointment when the benefit requestor submits, by the appointment time, a request to reschedule and provides a sufficient reason for the inability to appear.[13]
Untimely Request to Reschedule
A benefit request is considered abandoned and is denied when a requestor fails to appear for a biometric services appointment and USCIS has not received a rescheduling request by the appointment time.[14] However, notwithstanding the regulation and based on case law, agencies have some latitude to relax procedural rules adopted for the orderly transaction of business if justice so requires under the circumstances.[15]
Therefore, when a benefit requestor submits a request to reschedule the appointment after the appointment date has passed, and if the benefit request remains pending, USCIS may, in its discretion and based on the applicant’s circumstances, consider whether the benefit request has been abandoned. In considering abandonment and whether the officer should exercise discretion to reschedule based on the applicant’s circumstances, USCIS reviews such factors as:
-
The length of time between the missed appointment and the reschedule request;
-
Whether the benefit requestor has a sufficient reason[16] for failing to appear; and
-
Whether a denial would cause undue hardship or expense.
USCIS only accepts untimely rescheduling requests made to the USCIS Contact Center and does not accept untimely requests to reschedule by mail or in person at a USCIS office or through the myUSCIS online rescheduling tool.
No Evidence of Change of Address or Request to Reschedule
USCIS considers a benefit request abandoned if the requestor fails to appear for a biometric services appointment and there is no evidence of a change of address or a request to reschedule.[17]
When USCIS denies an application for abandonment, USCIS notifies the requestor and the authorized representative, as appropriate, of the decision in writing.[18] The priority or processing date of an abandoned benefit request may not be applied to a later benefit request.[19]
B. Mobile Biometrics Collection
USCIS may provide domestic mobile biometric services for those with a disability or health reason that prevents them from appearing in person at an ASC.[20] In other very limited circumstances, USCIS may in its sole discretion provide domestic mobile biometric services for those who are unable to attend scheduled ASC appointments in person.[21]
Mobile biometrics collection refers to a service USCIS provides in which the agency collects biometrics (for example, fingerprints, photographs, etc.) from persons with pending benefit requests, at pre-determined locations outside of an ASC. Mobile biometrics collection is typically performed by USCIS employees or contractors.[22] USCIS has discretion to conduct mobile biometrics collection.[23]
Remote Locations
USCIS may, in its sole discretion and on a case-by-case basis, provide mobile biometrics collection services to those residing in remote locations within the United States who are unable to attend scheduled ASC appointments in person.[24]
If USCIS determines that it is unable to provide mobile biometrics collection services due to a person’s remote location, USCIS may, in its discretion and on a case-by-case basis, coordinate with local law enforcement agencies (LEA) or other DHS components to collect biometrics on behalf of USCIS.
In this case, USCIS directly provides a fingerprint card (Form FD-258)[25] to the LEA or other DHS component and requires the LEA or DHS component to verify the applicant or petitioner’s identity and complete an attestation to accompany the fingerprint cards. The attestation ensures that the fingerprint card’s chain of custody remains with the LEA or DHS component from the time the biometrics are collected until it is returned to USCIS. The fingerprint card must never leave the presence of the LEA or DHS component that is responsible for collecting the fingerprints until it is provided to the carrier service to be returned to USCIS.
Persons in Custody
USCIS does not grant requests to collect biometrics from persons in custody at correctional institutions. USCIS officers and contract staff therefore do not travel to jails, prisons, or similar non-DHS detention facilities to perform biometric collections for any detained or incarcerated persons (including applicants, petitioners, beneficiaries, derivatives, sponsors, or other requestors, regardless of their immigration status or country of citizenship). In the case of an incarcerated person, USCIS officers must continue to follow all applicable regulations and procedures in issuing ASC notices to those whose appearance is required for biometrics collection. Per intradepartmental agreement, U.S. Immigration and Customs Enforcement, Enforcement and Removal Operations is responsible for completing background and security checks for those who are incarcerated at DHS facilities and applying for benefits with USCIS.
USCIS generally does not approve requests to reschedule a biometrics appointment for reason of detention or incarceration. The person must follow the procedures listed in the biometrics appointment notice to request their appointment be rescheduled.[26]
C. Fingerprint Waivers
A person may qualify for a waiver of the fingerprint requirement if he or she is unable to provide fingerprints because of a medical condition,[27] including but not limited to disability, birth defects, physical deformities, skin conditions, and psychiatric conditions.[28] Only certain USCIS employees are authorized to grant a fingerprint waiver.
A USCIS employee responsible for overseeing a person’s fingerprinting may grant the waiver if all of the following requirements are met:
-
The applicant, petitioner, beneficiary, sponsor, derivative, requestor, or individual person filing or associated with a benefit request appeared in person for the biometrics collection;
-
The officer or authorized technician attempted to fingerprint the person (or determined that such an attempt was impossible); and
-
The officer determines that the person is unable to be fingerprinted at all or is unable to provide a single legible fingerprint.
A USCIS employee should not grant a waiver if the waiver is solely based on the following situations:
-
The person has fewer than 10 fingers;
-
The officer considers the person’s fingerprints as unclassifiable; or
-
The person’s condition preventing the fingerprint collection is temporary.
If a fingerprint waiver is granted, the waiver is valid only for the particular application(s), petition(s), or benefit request(s) listed on the ASC notice for which biometrics are collected. The person must request a fingerprint waiver for each individual application, petition, or benefit request subsequently filed if the subsequent filing has a biometrics collection requirement.
A person who is granted a fingerprint waiver must bring local police clearance letters or other form-specific documentation[29] covering the relevant periods to the interview. All clearance letters become part of the record. In cases where the person is granted a fingerprint waiver or has two unclassifiable fingerprint results, USCIS must take a sworn statement from the person covering the relevant periods.
USCIS’ decision to deny a fingerprint waiver is final and may not be appealed.
D. Biometrics Collected [Partially Reserved]
[Partially Reserved]
1. Fingerprints [Reserved]
[Reserved]
2. Photographs
USCIS imbeds a photograph when creating secure documents as a security feature.[30] There are instances where USCIS requires a photograph be submitted with an application, petition, or request in order to create a secure document and the application, petition, or request does not have an associated biometrics collection requirement.[31] Where the applicant, petitioner, or requestor fails to submit a photograph at time of filing, USCIS may issue a Request for Evidence.
3. Signatures [Reserved]
[Reserved]
Footnotes
[^ 1] See 8 CFR 103.2(b)(9). For benefit requestors residing outside of the United States, USCIS may schedule biometrics collection at a USCIS office abroad, at a U.S. embassy or consulate, or at a U.S. military installation abroad. See 8 CFR 103.16. An exception to the requirement to collect new biometrics exists in the case of military naturalization. For military naturalization cases, a biometric background check must be performed, but USCIS may use previously collected fingerprints from a different immigration filing or may use fingerprints collected as part of enlistment processing to perform the check. For more information relating to biometrics collection for military members, see Volume 12, Citizenship and Naturalization, Part I, Military Members and their Families, Chapter 6, Required Background Checks, Section C, Ways Service Members may Meet Fingerprint Requirement [12 USCIS-PM I.6(C)].
[^ 2] Some noncitizens classified as special immigrant juvenile (SIJs) may not have government-issued photo identification. In this situation, USCIS may accept as evidence of identity a court-issued order citing the SIJ as the subject of the order, or official documentation issued by the U.S. Department of Health and Human Services (HHS) for unaccompanied children who are or have been in the custody of HHS. For more information on how to prepare for a biometric services appointment, see the Preparing for Your Biometric Services Appointment webpage.
[^ 3] See 8 CFR 103.2(b)(13)(ii).
[^ 4] For purposes of this Policy Manual part, the term requestor means any applicant, petitioner, sponsor, beneficiary, or individual filing a benefit request. See 8 CFR 103.2(b)(9).
[^ 5] For more information on rescheduling a biometric services appointment, see the Preparing for Your Biometric Services Appointment webpage.
[^ 6] See 8 CFR 103.2(b)(9)(ii). A benefit requestor may also appear at the ASC before the scheduled date or withdraw the benefit request. See 8 CFR 103.2(b)(9)(i) and 8 CFR 103.2(b)(9)(iii).
[^ 7] Benefit requestors may become aware of an undelivered biometric services appointment notice through their myUSCIS account or USCIS’ Case Status Online tool.
[^ 8] This subsection does not apply to applicants who have filed an Application for Asylum and for Withholding of Removal (Form I-589). See instead 8 CFR 208.10 (Failure to comply with fingerprint processing without good cause may result in dismissal of the application. Failure to appear at the fingerprint appointment will be excused if the applicant demonstrates that such failure was the result of exceptional circumstances.).
[^ 9] See Part E, Adjudications, Chapter 9, Rendering a Decision, Section B, Denials, Subsection 2, Abandonment Denials [1 USCIS-PM E.9(B)(2)].
[^ 10] See 8 CFR 103.2(b)(13)(ii).
[^ 11] See 8 CFR 208.10.
[^ 12] Evidence of such notice may include written correspondence from the benefit requestor or authorized representative, notice of change of address to the USCIS Contact Center, U.S. Postal Service address correction services, or Alien’s Change of Address Card (Form AR-11). For more information, see the How to Change Your Address webpage.
[^ 13] For examples of what warrants excusing a failure to appear, see Subsection 1, Timely Requests to Reschedule [1 USCIS-PM C.2(A)(1)].
[^ 14] See 8 CFR 103.2(b)(13)(ii).
[^ 15] While generally regulations must be followed by an agency as well as the regulated public, courts have allowed agencies some latitude to relax their procedural requirements in the interest of justice. See American Farm Lines v. Black Ball Freight Services, 397 U.S. 533, 539 (1970).
[^ 16] For examples of sufficient reasons, see Subsection 1, Timely Requests to Reschedule [1 USCIS-PM C.2(A)(1)].
[^ 17] See 8 CFR 103.2(b)(13).
[^ 18] See 8 CFR 103.3(a)(1)(i). A denial due to abandonment may not be appealed, but an applicant or petitioner may file a motion to reopen. See 8 CFR 103.2(b)(15). A denial due to abandonment may only be reopened in limited circumstances. See 8 CFR 103.5(a)(2)(i)-(iii).
[^ 19] See 8 CFR 103.2(b)(15).
[^ 20] The USCIS website provides a definition of the term accommodation; mobile biometrics is only one subset of accommodations. See the USCIS website for information on Disability Accommodations for the Public.
[^ 21] Please see the USCIS Contact Center webpage.
[^ 22] In some instances, USCIS may use other government agencies to perform remote biometrics collection. See Departments of Commerce, Justice, and State, the Judiciary, and Related Agencies Appropriations Act of 1998, Title I, Pub. L. 105-119 (PDF), 111 Stat. 2440, 2447-2448 (November 26, 1997); See 8 CFR 103.2(b)(9) and 8 CFR 103.16(a).
[^ 23] See 8 CFR 103.16 and 8 CFR 103.2(b).
[^ 24] To request mobile biometric services based on residing in a remote location, contact the USCIS Contact Center. To request mobile biometric services for reasons related to a disability or health, make your request online at Disability Accommodations for Appointments.
[^ 25] A Form FD-258 is card stock paper that records basic biographic information as well as both rolled and pressed fingerprints.
[^ 26] If the person is no longer in custody, he or she must also submit a change of address request on an Alien’s Change of Address Card (Form AR-11) for the appointment to be rescheduled at the new address.
[^ 27] The regulations at 8 CFR 204.3(c)(3) allow USCIS to waive the fingerprint requirement for prospective adoptive couples or additional adult members of the prospective adoptive parents’ household when it determines that such adult is “physically unable to be fingerprinted because of age or medical condition.” (Emphasis added.) As such, solely with respect to Petition to Classify Orphan as an Immediate Relative (Form I-600) and Application for Advance Processing of an Orphan Petition (Form I-600A) adjudications, USCIS must also consider whether the person is unable to be fingerprinted due to age in addition to medical condition.
[^ 28] The officer responsible for overseeing fingerprinting may request that a licensed mental health professional (that is, a psychologist, psychiatrist, or similar practitioner) or a licensed medical practitioner who has responsibility for the person’s care submit reasonable documentation in accordance with the procedure laid out in Part A, Public Services, Chapter 6, Disability Accommodation Requests [1 USCIS-PM-A.6].
[^ 29] For example, affidavits under 8 CFR 204.310(b) for an Application for Determination of Suitability to Adopt a Child from a Convention Country (Form I-800A) if the person is “physically unable to comply” with biometrics collection.
[^ 30] For example, Permanent Resident Card (Form I-551) and Employment Authorization Document (Form I-766).
[^ 31] See the relevant form instructions for more information.
Chapter 3 - Security Checks [Reserved]
Part D - Attorneys and Representatives
Part E - Adjudications
Chapter 1 - Purpose and Background
A. Purpose
In administering U.S. immigration laws, one of USCIS’ primary functions is to adjudicate immigration benefit requests.
Upon proper filing, each benefit request must be thoroughly reviewed to determine jurisdiction, presence of required supporting documentation, existence of related files, and eligibility.
This part provides general guidance on how USCIS adjudicates across the various types of benefit requests.[1] Variations in requirements and procedures may exist, depending on the benefit type, and are discussed in more detail in the program-specific parts of the Policy Manual.[2]
B. Background [Reserved]
[Reserved]
C. Legal Authorities
-
Homeland Security Act of 2002[3]
-
Federal Records Act of 1950, 44 U.S.C. 31, as amended – Records management by federal agencies
-
Privacy Act of 1974, 5 U.S.C. 552a, as amended[4] – Records maintained on individuals
-
Freedom of Information Act, 5 U.S.C. 552 – Public information; agency rules, opinions, orders, records, and proceedings
-
INA 103 – Powers and duties of the Secretary, Under Secretary, and Attorney General
-
8 CFR 103.2 – Submission and adjudication of benefit requests
-
INA 291 – Burden of proof upon alien
-
Delegation of Authority 0150.1 – Delegation to the Bureau of Citizenship and Immigration Services
Footnotes
[^ 1] For purposes of this Policy Manual part, the term requestor means the person, organization, or business requesting an immigration benefit from USCIS. This may include an applicant or petitioner, depending on the request. The term benefit request means any application, petition, appeal, motion, or other request submitted to USCIS for adjudication.
[^ 2] Certain immigration benefit requests, such as asylum or refugee applications, are governed by different regulations and procedures. Therefore, the guidance in this chapter may not apply to these immigration benefits governed by different regulations. Officers should consult the corresponding Policy Manual part and procedures for program-specific guidance.
[^ 3] See Pub. L. 107–296 (PDF), 116 Stat. 2135 (November 25, 2002).
[^ 4] See Pub. L. 93-579 (PDF), 88 Stat. 1896 (December 31, 1974).
Chapter 2 - Record of Proceeding
A. Maintaining a Record of Proceeding
A record of proceeding is the organized, official material constituting the record of any application, petition, hearing, or other proceeding before USCIS. A record of proceeding is typically contained within an Alien Registration File (A-File) or other agency file or electronic case management system, or a hybrid paper and electronic file.[1]
B. A-Files
A-files are a series of records maintained on a person that document the person's immigration history. A-files are created when an application or petition for a long-term or permanent benefit is received, or when enforcement action is initiated.
A-files may exist in physical format, or they may be created in digital format in various electronic case management systems, or they may be a hybrid of both paper and electronic files.[2]
A-files are stored and maintained by Department of Homeland Security (DHS) for persons born less than 100 years ago. For persons born 100 years ago or more, A-files are transferred to and stored by the National Archives and Records Administration (NARA).
Footnotes
[^ 1] Information contained in a record of proceeding is protected by the Privacy Act. For more information on the Privacy Act and confidentiality provisions, see Part A, Public Services, Chapter 7, Privacy and Confidentiality, [1 USCIS-PM A.7].
[^ 2] Digitized A-files may exist in the Enterprise Document Management System (EDMS) or STACKS.
Chapter 3 - Jurisdiction
A. Coordination in Cases Involving Removal Proceedings
In some cases, U.S. Immigration and Customs Enforcement (ICE) may notify USCIS of an application or petition pending with USCIS for a person in removal proceedings that must be timely adjudicated. In these cases, USCIS attempts to issue a decision on the relevant petition or application within 30 calendar days of receiving the necessary file(s) if the person is detained. If the person is not detained, USCIS attempts to issue a decision within 45 calendar days of receiving the file(s). If the next hearing in the removal case is scheduled within the 30- or 45-day time frame, USCIS typically works with ICE, to the extent possible, to complete action on the petition or application before the hearing date. USCIS maintains communication with ICE regarding the progress and status of the case.
USCIS adjudicates all immigration benefit requests according to existing laws, regulations, and USCIS policies and procedures. If acting on ICE's request to adjudicate an application or petition might compromise those responsibilities or adherence to any law, regulation, policy or procedure, USCIS notifies ICE that the adjudication cannot be completed within the 30- or 45-day timeframe. USCIS continues to communicate with ICE about the status of the case.
To the extent ICE currently coordinates directly with USCIS service centers with respect to benefit requests pending at the service centers, this guidance does not supersede or amend those arrangements.
B. Transferring Jurisdiction
A pending application or petition may be transferred to a different office or jurisdiction for several reasons, including but not limited to:
-
The application or petition was not filed in the proper jurisdiction;
-
The benefit requestor now resides within another jurisdiction;
-
An application or petition pending at a service center appears to warrant an in-person interview at a field office; or
-
Regulations require transfer of an application or petition to another office for specific action.
For certain applications, such as an Application for Naturalization (Form N-400), the applicant must meet certain jurisdictional requirements relating to residency as of the date of filing; transferring jurisdiction alone may not adequately address such filing deficiency.[1]
Footnote
[^ 1] See Volume 12, Citizenship and Naturalization, Part D, General Naturalization Requirements, Chapter 6, Jurisdiction, Place of Residence, and Early Filing [12 USCIS-PM D.6].
Chapter 4 - Burden and Standards of Proof
A. Burden of Proof
The burden of proof to establish eligibility for an immigration benefit always falls solely on the benefit requestor.[1] The burden of proof never shifts to USCIS.
Once a benefit requestor has met his or her initial burden of proof, he or she has made a prima facie case. This means that the benefit requestor has come forward with the facts and evidence which show that, at a minimum, and without any further inquiry, he or she has proven initial eligibility for the benefit sought, though in certain cases the officer is then required to determine whether approval or denial is appropriate, in his or her discretion.
B. Standards of Proof
The standard of proof is different than the burden of proof. The standard of proof is the amount of evidence needed to establish eligibility for the benefit sought. The standard of proof applied in most administrative immigration proceedings is the preponderance of the evidence standard. Therefore, even if there is some doubt, if the benefit requestor submits relevant, probative, and credible evidence that leads an officer to believe that the claim is “probably true” or “more likely than not,” then the benefit requestor has satisfied the standard of proof.[2]
If the requestor has not met this standard, it is appropriate for the officer to either request additional evidence or issue a notice of intent to deny, or deny the case.[3]
The preponderance of the evidence standard of proof does not apply to those applications and petitions where a different standard is specified by law. The Immigration and Nationality Act (INA) provides for a higher standard in some cases, such as the clear and convincing evidence standard that is required when a beneficiary enters into a marriage while in exclusion, deportation, or removal proceedings, and to determine the citizenship of children born out of wedlock.[4]
Footnotes
[^ 2] See INS v. Cardoza-Fonseca, 480 U.S. 421 (1987) (defining “more likely than not” as a greater than 50 percent probability of something occurring).
[^ 3] See Chapter 6, Evidence, Section F, Requests for Evidence and Notices of Intent to Deny [1 USCIS-PM E.6(F)] for more information.
[^ 4] See INA 245(e)(3). See INA 309(a)(1).
Chapter 5 - Verification of Identifying Information
As part of the adjudication of immigration benefits requests, USCIS reviews evidence and biometrics submitted by the benefit requestor, as well as USCIS systems, to verify identifying information.
A. Full Legal Name
In general, the requestor’s full legal name is comprised of his or her:
-
Given name (first name);
-
Middle name(s) (if any); and
-
Family name (last name).
The legal name is one of the following:
-
The requestor’s name at birth as it appears on the birth certificate (or other qualifying identity documentation when a birth certificate is unavailable);[1] or
-
The requestor’s name following a legal name change.
For purposes of requesting immigration benefits, a married person may use a legal married name (spouse’s surname), a legal pre-marriage name, or any form of either (for example, hyphenated name, pre-married name or spouse’s surname). Requestors must submit legal documentation, such as that listed below, to show that the name used is the requestor’s legal name:[2]
-
Civil marriage certificate;
-
Divorce decree;
-
Family registry;
-
Country identity document;
-
Foreign birth certificate;
-
Certificate of naming; or
-
Court order.
Construction of Foreign Names
Construction of foreign names varies from culture to culture. For example, certain countries’ birth certificates display names in this order: family name, middle name, given name. This is in contrast to most birth certificates issued in the United States, which display names in this order: given name, middle name, family name.[3]
B. Personal Information
1. Date of Birth [Reserved]
[Reserved]
2. Gender
Benefit requestors may select their gender on USCIS applications, petitions, and requests. Neither the initial selection nor any later change in gender selection requires supporting documentation. Further, the gender selected does not need to match the gender listed on other immigration documents nor does it need to match other supporting identity documents, such as a birth certificate, a passport, or state identification.
Except for the Application for Replacement Naturalization/Citizenship Document (Form N-565), USCIS does not require a medical certification, a physician’s letter, a government-issued document reflecting the requested gender designation, or a court order recognizing a change of gender.[4]
Benefit requestors seeking to change the gender selection on a benefit request while the request is still pending with USCIS should contact the USCIS Contact Center.[5] If USCIS has already made a decision on the benefit request and issued a secure document accordingly, benefit requestors should file the appropriate form, with the applicable fee, for replacement documents.[6]
Footnotes
[^ 1] There may be instances in which a birth certificate is unobtainable because of country conditions or personal circumstances. In these instances, a requestor may submit secondary evidence or affidavits to establish his or her identity. Any affidavit should explain the reasons primary evidence is unavailable. For more information, see the Department of State (DOS) Reciprocity Tables for identity documents that cannot be obtained in particular countries and during specific time periods. Asylum applicants may be able to establish their identity, including their full legal name, with testimony alone.
[^ 2] See 8 CFR 204.2. See 8 CFR 320.3. See 8 CFR 322.3.
[^ 3] For more information, see 8 Foreign Affairs Manual (FAM) 403.1, Name Usage and Name Change.
[^ 4] The current instructions for the Application for Replacement Naturalization/Citizenship Document (Form N-565) require applicants to submit documents in support of their request to change their gender marker. Therefore, this policy does not currently apply to Form N-565, and benefit requestors must continue to submit the form in accordance with the form instructions. See 8 CFR 103.2(a)(1). See Appendix: Sample Language for Healthcare Certification [1 USCIS-PM E.5, Appendices Tab]. Note that the current instructions for the Application to Replace Permanent Resident Card (Form I-90) do not require applicants to submit documents in support of their request to change their gender marker.
[^ 5] To comply with statutory confidentiality requirements, USCIS has special procedures in place for previously filed or approved benefit requests under the Violence Against Women Act (VAWA) or Trafficking Victims Protection Act. See 8 U.S.C. 1367. For information on case inquiries related to a previously filed VAWA self-petition or related adjustment of status, see the Abused Spouses, Children and Parents webpage. For information on case inquiries related to a previously filed Petition for U Nonimmigrant Status (Form I-918), Application for T Nonimmigrant Status (Form I-914), or related Application to Register Permanent Residence or Adjust Status (Form I-485), see the Victims of Human Trafficking and Other Crimes webpage.
[^ 6] See Volume 11, Travel and Identity Documents, Part A, Secure Identity Documents Policies and Procedures, Chapter 3, Reissuance of Secure Identity Documents [11 USCIS-PM A.3].
Chapter 6 - Evidence
Any evidence submitted in connection with a benefit request is incorporated into and considered part of the request.[1] The purpose of gathering evidence is to determine some fact or matter at issue. When adjudicating a benefit request under the preponderance of evidence standard, the officer examines each piece of evidence for relevance, probative value, and credibility, both individually and within the context of the totality of the evidence, to determine whether the fact to be proven is “more likely than not” or “probably” true.[2]
The administrative record created by an officer is often crucial in later proceedings relating to the same requestor, such as appeals, rescission proceedings, removal proceedings, applications for relief and protection from removal, other benefit requests, and investigations of fraud. Additionally, under the Jencks Act,[3] anyone who provides a statement at an administrative proceeding, such as an immigration interview, is a potential government witness whose statement the government may be required to produce. Therefore, officers and other USCIS staff must retain and enter into the administrative record the following:
-
Written and signed affidavits from statements, such as sworn statements;
-
Recordings and transcripts of interviews;
-
Original interview notes;
-
Original notes made during site visits and surveillance operations; and
-
Original drafts of reports concerning interviews or surveillance operations if they are the first written record of the interview or surveillance.
A requestor must establish eligibility for the requested benefit at the time of filing the benefit request and must continue to be eligible through adjudication. If the evidence the requestor provides meets their burden of proof to establish eligibility,[4] USCIS approves the benefit request. If the law requires an exercise of discretion, USCIS can approve the request only if the requestor merits a favorable exercise of discretion and otherwise establishes eligibility.[5] If the evidence is not sufficient to establish eligibility, USCIS may request evidence or proceed to denial, as appropriate.
A. Initial and Additional Evidence [Reserved]
[Reserved]
B. Primary and Secondary Evidence
Each benefit request has specific eligibility requirements that a requestor must meet, which must be demonstrated by evidence. Any evidence the requestor submits in connection with a benefit request is incorporated into and considered part of the request.[6]
Some evidence is considered primary evidence, and other evidence is considered secondary evidence. Primary evidence is evidence that on its own proves an eligibility requirement. For example, a divorce certificate is primary evidence of a divorce. Secondary evidence is evidence that may demonstrate a fact is more likely than not true, but the evidence does not derive from a primary, authoritative source. Records maintained by religious or faith-based organizations showing that a person was divorced at a certain time are an example of secondary evidence of the divorce.
Likewise, a government-issued birth certificate is an example of primary evidence of the birth of a child, whereas a baptismal certificate is an example of secondary evidence of the birth of a child.[7]
USCIS requires primary evidence where such evidence is generally available according to the U.S. Department of State (DOS).[8] If the requestor cannot obtain such primary evidence, the requestor must demonstrate that the required primary evidence does not exist or cannot be obtained and provide secondary evidence.[9] Any secondary evidence submitted must overcome the unavailability of primary evidence.[10]
However, for some applications and petitions, such as asylum applications and applications for classification as a refugee, testimony alone may meet the evidentiary requirements.[11]
Primary Evidence that Does not Exist or Cannot be Obtained
Officers might encounter situations in which primary evidence is available according to DOS’s U.S. Visa: Reciprocity and Civil Documents by Country webpage, but the applicant asserts it does not exist or cannot be obtained.[12] This generally gives rise to a presumption of ineligibility, which is the requestor’s burden to overcome.[13] A requestor cannot simply assert that primary evidence does not exist.
In the absence of primary evidence as required by regulation,[14] the requestor must:
-
Demonstrate that the required document does not exist or cannot be obtained by providing a written statement from the appropriate issuing authority attesting to the fact that no primary record exists and the reason the record does not exist;[15] and
-
Submit secondary evidence that overcomes the unavailability of the primary evidence.
In the absence of primary and secondary evidence as required by regulation,[16] the requestor must:
-
Demonstrate that the required document does not exist or cannot be obtained by providing a written statement from the appropriate issuing authority attesting to the fact that the primary record does not exist and the reason the record does not exist;
-
Demonstrate the unavailability of any secondary evidence; and
-
Submit two or more affidavits by persons who are not parties to the benefit request and who have direct personal knowledge of the event and circumstances.[17]
A requestor who is not able to provide a written statement of unavailability from the relevant foreign authority may instead submit evidence of repeated good faith attempts to obtain the required document or statement.[18]
Primary Evidence that is Generally Available but is Unreliable
Officers may also encounter cases where primary evidence is generally available, but DOS reports that such documents are unreliable. Civil records may be considered unreliable or require additional scrutiny for various reasons, including inaccurate recording, date of issuance, inconsistent standards for issuance, or widespread fraud.
If foreign documents submitted as primary evidence are unreliable according to DOS,[19] USCIS may request secondary evidence[20] in support of the benefit request. In cases where the secondary evidence is insufficient, or where interview criteria indicate, USCIS may refer the benefit requestor for an in-person interview. In addition, petitioners or applicants should be encouraged to submit all evidence at their disposal in response to any Request for Evidence (RFE). Whether evidence establishes the eligibility requirements is evaluated by the totality and quality of the evidence presented.
C. Copies vs. Originals
When adjudicating an immigration benefit, officers need to verify facts such as dates of marriage, birth, death, and divorce, as well as criminal and employment history. The “best evidence rule” states that where the facts are at issue in a case, the officer should request the original document. For example, if evidence of a divorce decree is required and a submitted photocopy looks altered, the officer should request the original divorce decree.
1. When Originals Required and Photocopies Permitted
When a requestor files a paper form[21] with USCIS, original documents may be required. Examples of supporting documents that requestors must generally present in the original are:
-
Medical examinations;
-
Affidavits; and
-
Labor certifications.
Unless otherwise required, the requestor may submit a legible photocopy of any other supporting document at the time of filing.[22]
2. Requesting Original Documents
USCIS may, at any time, request submission of an original document for review. The request sets a deadline for submission of the original document.
If a requestor does not submit the requested original of the document by the deadline, USCIS may deny the benefit request as abandoned, based on the record, or both.[23]
3. Returning Original Documents
Upon completion of the adjudication, USCIS may return original documents if the submission was in response to a USCIS request. All retained originals become part of the record. Although USCIS does not automatically return originals that it did not request, offices are encouraged to voluntarily return submitted original documents.[24]
To request return of originals that were not returned during the adjudication process, the requestor may submit a Request for the Return of Original Documents (Form G-884).
D. Types of Evidence
Strict rules of evidence used in judicial proceedings do not apply in administrative proceedings, including benefits requests before USCIS. Usually, requestors may submit any oral or documentary evidence for USCIS’ consideration when determining eligibility for the benefit sought.
Because the strict rules of evidence do not apply in administrative proceedings, officers may consider a wide range of oral or documentary evidence.
1. Documentary Evidence
Documentary evidence includes all types of documents, records, and writings and is subject to the same considerations regarding competency and credibility as is testimonial evidence discussed below. Documentary evidence may be divided into two categories: public documents and private documents.
Public Documents
Public documents are the official records of legislative, judicial, and administrative bodies. A requestor may submit public documents as evidence to demonstrate eligibility for the benefit sought. For example, a government-issued birth certificate is a public document.
Birth or baptismal records maintained by officials in religious or faith-based organizations are not considered public documents but may be accepted as secondary evidence of birth if the actual place of birth is indicated on the certificate.
Private Documents
Private documents include all documents other than the official records of legislative, judicial, or administrative bodies of government. Requestors often submit private documents as supporting evidence for benefit requests. Private documents can include, but are not limited to, business or tax records, bank statements, affidavits, education credentials, or photographs.
2. Testimonial Evidence
Officers frequently take testimony to determine eligibility for immigration benefits.[25] An officer should only take testimony from a person who is mentally competent at the time set to testify. An officer should not attempt to take testimony from any person who might lack the mental capacity, such as:
-
A person who has been found mentally incompetent by an appropriate authority;
-
A person who is under the influence of drugs or alcohol; or
-
A person the officer suspects is mentally incompetent. In those cases, the officer must clearly document their reason(s) for reaching that conclusion.
In any situation where the witness’ competency is in doubt, officers should supplement the record with the testimony of another witness, with other evidence relating to the same matter or reschedule the interview, per local procedures.
When interviewing minors, officers should consider the child’s age, stage of language development, and emotional maturity when eliciting testimony. Such interviews must be conducted with sensitivity and may warrant special considerations, including determining whether a trusted adult may be present.
Credibility of Testimony
Discrepancies in statements do not necessarily discredit the witness.[26] A truthful witness, in speaking of a past event, might not repeatedly reproduce the facts in their entirety without some change in detail.
Witnesses who have signed statements might later indicate that they wish to retract the statement, or they might give contrary testimony when later called upon to testify. USCIS may not prevent such witnesses from retracting or changing prior statements. However, contradictory statements may adversely impact the credibility of the witness.[27]
If an officer determines that the testimony of a witness is not credible, the written decision or interview notes or both should indicate this conclusion. However, it generally is not enough to simply say that the witness is not credible. Instead, the officer’s decision should give the specific reason(s) for the conclusion and refer to evidence in the record that supports the conclusion.
Privileged Testimony
Officers may occasionally encounter the issue of privilege. A testimonial privilege allows the person who invokes it to bar testimony that would violate the privilege. Examples include the privilege against self-incrimination and spousal privileges.
Each privilege differs slightly in how it applies, such as whose testimony may be barred and who may invoke the privilege. The scope of the material covered by the privilege also differs.[28]
Sworn Statements
An officer may also take a sworn statement. A sworn statement is a written declaration given under an oath (or affirmation). It must be witnessed and signed and contain an accurate record of the questions asked, and answers received. The sworn statement becomes part of the permanent, official record and may be used in a subsequent proceeding or prosecution. The determination of benefit eligibility may depend on the evidence in the sworn statement and the interview record it creates may be particularly important in complex cases, such as those involving national security or fraud concerns.
An officer taking a sworn statement must focus on gathering all necessary information to make a decision. The officer must structure the statement in a manner that is logical, using a clear progression of facts and questions. Officers should explore each relevant fact uncovered in a statement by further questioning to the extent necessary before changing topics.
When a sworn statement is taken and the affiant signs it, the affiant (the person making the statement) or authorized representative may request a copy of the statement. Upon request, USCIS provides a copy of the signed sworn statement to an affiant, without fee, at the conclusion of the interview where the statement was taken.[29]
3. Expert and Opinion Evidence
On occasion, officers may require evidence from an expert to assist in completing an adjudication. For example, in cases involving handwritten, counterfeit, or altered documents, U.S. Immigration and Customs Enforcement (ICE)’s Homeland Security Investigations Forensic Laboratory may serve as experts.[30] A requestor may also submit evidence from a non-DHS expert.
An expert is permitted to give an opinion on a particular set of facts or circumstances involving scientific, technical, or other specialized knowledge. Knowledge, skill, experience, training, or education must qualify the expert. Officers may reject or afford lesser evidentiary weight to expert opinions that conflict with the evidence of record or are questionable.[31]
E. Translations
1. Document Translations
Any document containing a foreign language submitted in support of a benefit request must be accompanied by a full English language translation.[32] The translator must certify that the translation is complete and accurate, and that the translator is competent to translate from the foreign language into English.[33] Sometimes the keeper of a record issues an “extract” version of a document. Such official extracts are acceptable, but only if they contain all the information necessary to make a decision on a case. Only extracts prepared by an authorized official (the “keeper of record”) are acceptable. A summary of a document prepared by a translator is unacceptable.
2. Document Translators
If an officer takes a written statement in a foreign language and a translator translates it into English, it may be necessary to produce the translator at a subsequent interview or hearing. When there is evidence that a written statement might not be accurately translated, the translator may be called upon to testify not only as to knowledge of the English and the foreign language, but also to confirm the accuracy of the translation.[34]
F. Requests for Evidence and Notices of Intent to Deny
Under the regulations, USCIS has the discretion to issue Requests for Evidence (RFEs) and Notices of Intent to Deny (NOIDs) for immigration benefit requests in appropriate circumstances.[35] USCIS also has the discretion in some instances to issue a denial without first issuing an RFE or a NOID.
An officer should issue an RFE or NOID when the facts and the law warrant; an officer should not avoid issuing an RFE or NOID when one is needed. However, an officer should not issue an RFE or NOID if the officer determines the evidence already submitted establishes eligibility or ineligibility for the request. An unnecessary RFE or NOID can delay case completion and result in additional unnecessary costs to both the government and the benefit requestor.[36]
Generally, USCIS issues written notices in the form of an RFE or NOID to request missing initial[37] or additional evidence from benefit requestors. However, USCIS has the discretion to deny a benefit request without issuing an RFE or NOID. If the officer determines a benefit request does not have any legal basis for approval, the officer should issue a denial without prior issuance of an RFE or a NOID.[38]
1. Evaluating Evidence and Eligibility
Unless otherwise specified, officers should generally follow these principles in each case:
- Understand the specific elements required to demonstrate eligibility for the benefit request.[39]
- Understand the standard of proof that applies to the benefit request. In most instances, the benefit requestor must establish eligibility under the preponderance of the evidence standard. Under that standard, the benefit requestor must prove it is more likely than not that the requestor meets each of the required elements.[40]
- Review all the evidence to determine if each of the essential elements has been satisfied by the applicable standard of proof.
If the officer determines that the benefit requestor is eligible for the benefit requested (all the essential elements have been satisfied by the applicable standard of proof, including but not limited to, when applicable, that a favorable exercise of discretion is warranted), the officer approves the benefit request without issuance of an RFE or NOID.[41]
If the benefit requestor has not established eligibility under the applicable standard of proof, the officer generally issues an RFE or NOID to request evidence of eligibility. However, if the benefit request does not have a legal basis for approval, and the officer determines that there is no possibility that additional information or explanation will establish a legal basis for approval, then the officer generally should deny the benefit request without first issuing an RFE or NOID.[42]
2. Considerations Before Issuing Requests for Evidence or Notices of Intent to Deny
Instead of or in addition to issuing an RFE or NOID, the officer may also:
-
Perform additional research;
-
If not already required for the benefit type, interview the benefit requestor or other witnesses; or
-
Initiate an investigation.
Each option requires varying degrees of resources. Therefore, officers should carefully evaluate each option when deciding next steps.
Performing Additional Research
Although the burden of proof to establish eligibility for an immigration benefit is on the benefit requestor,[43] an officer may assess, before issuing an RFE or a NOID, whether the information or evidence needed is available in USCIS records or systems. Officers have the discretion[44] to validate assertions or corroborate evidence and information by reviewing USCIS (or other governmental) files, systems, and databases, or by obtaining publicly available information that is readily accessible.[45]
For example, an officer may, in the exercise of discretion, verify information relating to a petitioner’s corporate structure by consulting a publicly available government website or corroborate evidence relating to a person’s history of nonimmigrant stays in the United States by searching a U.S. government database.
3. Requests for Evidence
If the benefit requestor either has not submitted all of the required initial evidence[46] for the benefit request, or the evidence in the record does not establish eligibility for the benefit sought, the officer should issue an RFE or NOID requesting such evidence unless the officer determines that there is no legal basis for the benefit request and no possibility that additional information or explanation will establish a legal basis for approval.[47]
Content of RFEs
RFEs should:
-
Identify the eligibility requirement(s) that has not been established and why the evidence submitted is insufficient;
-
Identify any missing evidence specifically required by the applicable statute, regulation, or form instructions;
-
Identify examples of other evidence that may be submitted to establish eligibility; and
-
Request that evidence.
An officer should not request evidence that is outside the scope of the adjudication or otherwise irrelevant to an identified deficiency.
The RFE should ask for all the evidence the officer anticipates needing to determine eligibility and should clearly state the deadline for response.
Avoiding Multiple RFEs
In certain instances, the evidence provided in response to an RFE may raise eligibility questions that the officer did not identify during initial case review or open new lines of inquiry. In such a case, the officer may issue a follow-up RFE or NOID. However, officers should include in a single RFE all the evidence they anticipate needing to determine eligibility. The officer’s careful consideration of all the apparent deficiencies in the evidence minimizes the need for multiple RFEs.
Timeframe for Response
The maximum response time for an RFE is 12 weeks (84 days); regulations prohibit officers from granting additional time to respond to an RFE.[48]
However, the regulations permit USCIS to assign flexible timeframes for benefit requestors to respond to an RFE.[49] To ensure consistency, officers should follow standard timeframes but may reduce the response time on a case-by-case basis after obtaining supervisory concurrence. This discretion should only be used when warranted by circumstances as determined by the officer and the supervisor.
The RFE must clearly state the deadline by which the requested initial or additional evidence must be submitted to USCIS.
Regulations govern the effect of service, which may be in person, by ordinary mail, or electronically.[50] When USCIS serves an RFE by ordinary mail, the service of the RFE is complete upon the benefit requestor on the day that USCIS physically mails the RFE.[51] When USCIS serves an RFE by ordinary mail, an RFE response is timely if USCIS receives it no more than 3 days after the prescribed period. This provides a total of 87 days after USCIS mails the RFE, for USCIS to receive an RFE response.
Further, USCIS applies the regulatory definition of day[52] when reviewing a mailed RFE response for timeliness. Where USCIS receives the response on a Monday or on the next business day after a federal holiday, USCIS considers the response to be timely if the deadline fell on the preceding Saturday, Sunday, or federal holiday. As such, when the last day of the filing period falls on a Saturday, Sunday, or federal holiday, the RFE response period is extended until the end of the next business day that is not a Saturday, Sunday, or federal holiday.
USCIS considers a response to an RFE that is issued through the USCIS online system to be received on the date it is electronically filed through the individual’s (or attorney or representative’s) online account, regardless of whether the day is on a weekend or federal holiday.
Additional mailing time (14 days) should be given to benefit requestors residing outside the United States or when USCIS mails an RFE from an international USCIS field office.
Standard Timeframes
In compliance with the regulations, the guidelines in the table below provide standard timeframes for benefit requestors to respond to RFEs.[53] These standard timeframes do not apply to circumstances in which a fixed maximum response time is specified by regulation.[54]
When Submitting Evidence Required For |
Standard Response Time (Calendar Days) |
Additional Mailing Time When Residing Inside the United States |
Additional Mailing Time When Residing Outside the United States or When an International Field Office Issues RFEs |
---|---|---|---|
Application to Extend/Change Nonimmigrant Status (Form I-539)[55] |
30 |
3 |
N/A |
Application for Provisional Unlawful Presence Waiver (Form I-601A)[56] |
30 |
3 |
N/A |
All other form types, regardless of whether the request is for initial or additional evidence, or whether the evidence is available in the United States or from overseas sources[57] |
84 |
3 |
14 |
4. Notices of Intent to Deny
Circumstances Under Which NOIDs are Required[58]
USCIS issues a NOID before denying any immigration benefit requests submitted on the following forms:
-
Application for Determination of Suitability to Adopt a Child from a Convention Country (Form I-800A) based on a mandatory denial ground;[59]
-
Petition to Classify Convention Adoptee as an Immediate Relative (Form I-800) based on a mandatory denial ground;[60] or
-
Application to Register Permanent Residence or Adjust Status (Form I-485) filed by a physician because the physician failed to comply with the conditions attached to his or her national interest waiver.[61]
Derogatory Information Unknown to the Benefit Requestor
In general, USCIS is also required to issue a NOID when derogatory information is uncovered during the course of the adjudication that is not known to the benefit requestor and USCIS intends to deny the benefit request on the basis of that derogatory information.[62] The benefit requestor may be either unaware of the derogatory information or unaware of its impact on eligibility.
When USCIS bases an adverse decision on derogatory information that may be unknown to the benefit requestor, USCIS must provide the requestor an opportunity to rebut that information.[63] A NOID provides a benefit requestor with adequate notice and sufficient opportunity to respond and the opportunity to review and rebut derogatory information not known to the benefit requestor.
Any explanation, rebuttal, or information presented by or on behalf of the benefit requestor must be included in the record of proceeding.
Additional Circumstances Under Which USCIS May Issue NOIDs
While not required in other situations, a NOID also provides a benefit requestor with adequate notice and sufficient opportunity to respond to an intended denial because of a determination of ineligibility.[64]
It is also appropriate for officers to issue NOIDs in the following circumstances:
-
The benefit requestor submitted little or no evidence;[65] or
-
The benefit requestor has met the eligibility requirements for the requested benefit or action but has not established that he or she warrants a favorable exercise of discretion (where there is also a discretionary component to the adjudication).[66]
Content of NOIDs
NOIDs should:
-
Identify the reasons for the intended denial, including the eligibility requirement(s) that has not been established, and why the evidence submitted is insufficient;
-
Explain the nature of the adverse information, if any.
-
Identify any missing evidence specifically required by the applicable statute, regulation, or form instructions;
-
Identify examples of other evidence that may be submitted to establish eligibility; and
-
Request that evidence.
The NOID should also instruct the benefit requestor that a failure to respond may result in a denial and must clearly state the deadline for response.[67]
Timeframe for Response
The NOID must clearly state the deadline by which the response must be submitted to USCIS. The maximum response time for a NOID is 30 days.[68]
Regulations govern the effect of service, which may be in person, by ordinary mail, or electronically.[69] When USCIS serves a NOID by ordinary mail, the service of the NOID is complete upon the benefit requestor on the day that USCIS physically mails the NOID.[70] When USCIS serves a NOID by ordinary mail, a NOID response is timely if USCIS receives it no more than 3 days after the prescribed period. If the response time is 30 days, this provides a total of 33 days after USCIS mails the NOID, for USCIS to receive a NOID response.
Further, USCIS applies the regulatory definition of day[71] when reviewing a mailed NOID response for timeliness. Where USCIS receives the response on a Monday or on the next business day after a federal holiday, USCIS considers the response to be timely if the deadline fell on the preceding Saturday, Sunday, or federal holiday. As such, when the last day of the filing period falls on a Saturday, Sunday, or federal holiday, the NOID response period is extended until the end of the next business day that is not a Saturday, Sunday, or federal holiday.
USCIS considers a response to a NOID that is issued through the USCIS online system to be received on the date it is electronically filed through the individual’s (or attorney or representative’s) online account, regardless of whether the day is a weekend or federal holiday.
Additional mailing time (14 days) should be given to benefit requestors residing outside the United States or when USCIS mails a NOID from an international USCIS field office.
Standard Timeframes
In compliance with the regulations, the guidelines in the table below provide standard timeframes for benefit requestors to respond to NOIDs.[72]
When Submitting Evidence Required For |
Standard Response Time (Calendar Days) |
Additional Mailing Time When Residing Inside the United States |
Additional Mailing Time When Residing Outside the United States or When an International Field Office Issues NOIDs |
---|---|---|---|
All form types[73] |
30 |
3 |
14 |
5. Responses to Requests for Evidence and Notices of Intent to Deny
Within the timeframe specified, benefit requestors may respond to an RFE or NOID in one of three ways:
-
Submit a complete response containing all requested information;
-
Submit a partial response, which is considered a request for a decision on the record; or
-
Withdraw the application or petition.[74]
Requested Materials Must Be Submitted Together
Whether in response to an RFE or a NOID, benefit requestors must submit all requested materials together at one time, along with the original RFE or NOID. USCIS treats any submission partially responding to an RFE or NOID as a request for a final decision on the record.[75] USCIS does not wait for a second response or issue a second RFE simply because a response from the benefit requestor is a partial response.
Failure to Respond to an RFE or NOID
Failure to submit requested evidence that is relevant to the adjudication is grounds for denying the request.[76] If a benefit requestor does not respond to an RFE or NOID by the required date,[77] USCIS may:
-
Deny the benefit request as abandoned;[78]
-
Deny the benefit request on the record; or
-
Deny the benefit request for both reasons.[79]
Footnotes
[^ 1] See 8 CFR 103.2(b).
[^ 2] See Matter of Chawathe (PDF), 25 I&N Dec. 369, 376 (AAO 2010). Certain documentation requirements do not apply to asylees adjusting status. See INA 212(a)(7)(A).
[^ 3] See 18 U.S.C. 3500. The Jencks Act requires that a statement that was made by a government witness be produced after the government witness has testified upon demand by the defense. Failure by the government to produce the statement requires the suppression of the testimony of that witness.
[^ 5] See Chapter 8, Discretionary Analysis [1-USCIS PM E.8].
[^ 6] See 8 CFR 103.2(b)(1).
[^ 7] Although birth certificates are primary evidence, when the birth certificate was not registered contemporaneously with the birth, the officer must consider the birth certificate, as well as all the other evidence of record and the circumstances of the case, to determine whether the petitioner has submitted sufficient reliable evidence to demonstrate the claimed relationship by a preponderance of the evidence. See Matter of Rehman, 27 I&N Dec. 124 (BIA 2017). In addition, as of September 30, 2010, all birth certificates that were issued in Puerto Rico before July 1, 2010 are invalid. For any benefit request received after September 30, 2010, officers should verify that the Puerto Rico birth certificate was issued by the General Vital Statistics Office of Puerto Rico (Puerto Rico Department of Health) on or after July 1, 2010. For additional information related to the legislation that amended Puerto Rico law with respect to the issuance and validity of birth certificates, see S.B. 1653, Law No. 68 of 2009.
[^ 8] Officers reference DOS’s U.S. Visa: Reciprocity and Civil Documents by Country webpage for country-specific document standards.
[^ 9] See 8 CFR 103.2(b).
[^ 10] See 8 CFR 103.2(b)(2). For self-petitions under the Violence Against Women Act (VAWA) and petitions and applications for T and U nonimmigrant status (for victims of human trafficking and other specified crimes), USCIS considers any credible evidence relevant to the petition or application. Requestors may submit any credible, relevant, and probative evidence to establish eligibility. The determination of what evidence is credible and the weight to be given that evidence is within the sole discretion of USCIS and determined on a case-by-case basis. See INA 204(a)(1)(J). See INA 214(p)(4). See 8 CFR 103.2(b)(2)(iii). See 8 CFR 204.1(f)(1). See 8 CFR 204.2(c)(2)(i). See 8 CFR 204.2(e)(2)(i). See 8 CFR 214.14(c)(4). See 8 CFR 214.11(d)(2) and 8 CFR 214.11(d)(5). VAWA self-petitioners may not be required to demonstrate that preferred primary or secondary evidence is unavailable. See 8 CFR 103.2(b)(2)(iii). See Volume 3, Humanitarian Protection and Parole [3 USCIS-PM].
[^ 11] See INA 208(b)(1)(B)(ii).
[^ 12] The DOS’s website provides country-specific information on the availability of various foreign documents. If DOS shows that a record is generally not available in a particular country, USCIS may accept secondary evidence without requiring the written statement from the issuing authority. See 8 CFR 103.2(b)(2)(ii).
[^ 13] See 8 CFR 103.2(b)(2)(i).
[^ 14] See 8 CFR 103.2(b).
[^ 15] See 8 CFR 103.2(b)(2)(ii).
[^ 16] See 8 CFR 103.2(b).
[^ 17] Secondary evidence must overcome the unavailability of primary evidence, and affidavits must overcome the unavailability of both primary and secondary evidence. See 8 CFR 103.2(b)(2).
[^ 18] See 8 CFR 103.2(b)(2)(ii).
[^ 19] See 8 CFR 204.1(f)(1). DOS’s U.S. Visa: Reciprocity and Civil Documents by Country webpage provides country-specific information on the availability and reliability of various foreign documents. If DOS shows that a record is generally not reliable in a particular country, USCIS should request secondary evidence.
[^ 20] Secondary evidence may include optional submission of DNA results. In certain cases where primary and secondary evidence are not sufficient to demonstrate a claimed family relationship, USCIS may send the requestor a Request for Evidence (RFE) suggesting DNA testing to support a claim of a biological family relationship. DNA collection is voluntary and a decision to omit DNA evidence is not factored into an adjudicative decision. For additional information on voluntary DNA submission, see USCIS Response to COVID-19 webpage.
[^ 21] For benefit requests filed electronically as permitted by form instructions, requestors must follow the instructions provided to properly submit all required evidence. For additional information relating to electronic filings, see Part B, Submission of Benefit Requests, Chapter 6, Submitting Requests [1 USCIS-PM B.6].
[^ 22] For additional information on when USCIS requires original documents, see form-specific filing instructions.
[^ 23] See 8 CFR 103.2(b)(4)-(5). See 8 CFR 103.2(b)(13).
[^ 24] See 8 CFR 103.2(b)(5).
[^ 25] For example, an officer reviews all relevant records and considers the applicant’s testimony to determine whether a naturalization applicant has met the required period of continuous residence.
[^ 26] Witnesses may include, but are not limited to, applicants, petitioners, and other benefit requestors.
[^ 27] Retraction of prior statements made under oath may, under certain conditions, render the witnesses liable for perjury. However, witnesses have a legal right to claim that written statements are not true, or that they were obtained by fraud or duress.
[^ 28] Officers should not confuse privileged testimony with confidentiality provisions. For more information on confidentiality, see Part A, Public Services, Chapter 7, Privacy and Confidentiality. [1 USCIS-PM A.7].
[^ 29] See 8 CFR 103.2(b)(7).
[^ 30] If an officer intends to issue an adverse decision based on derogatory information of which the benefit requestor is unaware, the officer must disclose the information and provide the benefit requestor the opportunity to rebut the information and present information in the requestor’s own behalf. See 8 CFR 103.2(b)(16)(i).
[^ 31] See Matter of Caron Int'l, Inc. (PDF), 19 I&N Dec. 791, 795 (Comm. 1988).
[^ 32] See 8 CFR 103.2(b)(3).
[^ 33] See 8 CFR 103.2(b)(3).
[^ 34] See 8 CFR 103.2(b)(3).
[^ 35] See 8 CFR 103.2(b)(8). However, certain immigration benefits, such as refugee and asylum applications, are governed by different regulations and procedures regarding RFEs, NOIDs, denials, and failures to appear; therefore, the guidance in this chapter does not apply to these immigration benefits governed by different regulations. The terms “benefit request” and “immigration benefit request,” as used in this Policy Manual part, include, but are not limited to, all requests funded by the Immigration Examinations Fee Account (IEFA). These terms may also refer to forms or requests not directly resulting in an immigration benefit.
[^ 36] For purposes of this Policy Manual part, the terms “benefit requestor” and “requestor” mean the person, organization, or business requesting an immigration benefit from USCIS. In most instances, this will either be an applicant or a petitioner, depending on the request.
[^ 37] See 8 CFR 103.2(b)(1). Each benefit request must be properly completed and filed with all initial evidence required by applicable regulations and other USCIS instructions.
[^ 38] For more information, see Chapter 9, Rendering a Decision, Section B, Denials, Subsection 1, Denials Based on Lack of Legal Basis [1 USCIS-PM E.9(B)(1)].
[^ 39] See the program-specific part of the Policy Manual for more information on eligibility requirements that apply to a particular benefit request.
[^ 40] For more information, see Chapter 4, Burden and Standards of Proof [1 USCIS-PM E.4].
[^ 41] See 8 CFR 103.2(b)(8)(i).
[^ 42] See Chapter 9, Rendering a Decision, Section B, Denials, Subsection 1, Denials Based on Lack of Legal Basis [1 USCIS-PM E.9(B)(1)].
[^ 43] See INA 291. See Matter of Arthur (PDF), 16 I&N Dec. 558 (BIA 1978).
[^ 44] However, under 8 CFR 103.2(b)(17), officers must verify the status of an applicant or petitioner who claims that he or she is a lawful permanent resident by reviewing USCIS records.
[^ 45] See INA 287(b). See 8 CFR 103.2(b)(16)(i).
[^ 46] For applications and petitions for T and U nonimmigrant status (for victims of trafficking and other specified crimes) and Violence Against Women Act (VAWA) benefit requests, USCIS considers any credible evidence relevant to the request. Requestors may submit any credible, relevant, and probative evidence to establish eligibility. See INA 204(a)(1)(J). See INA 214(p)(4). See 8 CFR 103.2(b)(2)(iii). See 8 CFR 204.1(f)(1). See 8 CFR 204.2(c)(2)(i). See 8 CFR 204.2(e)(2)(i). See 8 CFR 214.14(c)(4). See 8 CFR 214.11(d)(2) and 8 CFR 214.11(d)(5).
[^ 47] If there is no legal basis for the benefit request and no possibility that additional information or explanation will establish a legal basis, the officer may deny the request without first issuing an RFE or NOID. See Chapter 9, Rendering a Decision, Section B, Denials, Subsection 1, Denials Based on Lack of Legal Basis [1 USCIS-PM E.9(B)(1)].
[^ 48] See 8 CFR 103.2(b)(8)(iv). Officers adjudicating a benefit request may exercise their discretion to consider late responses to RFEs to have been submitted timely if in their view circumstances warrant it.
[^ 49] See 8 CFR 103.2(b)(8) and 8 CFR 103.2(b)(11).
[^ 50] See 8 CFR 103.8(b) (“[w]henever a person has the right or is required to do some act within a prescribed period after the service of a notice upon him and the notice is served by mail, 3 days shall be added to the prescribed period. Service by mail is complete upon mailing.”). See 8 CFR 103.8(a) (describing routine service by ordinary or electronic mail and personal service, performed by a government employee).
[^ 51] See 8 CFR 103.8(b) (“[w]henever a person has the right or is required to do some act within a prescribed period after the service of a notice upon him and the notice is served by mail, 3 days shall be added to the prescribed period. Service by mail is complete upon mailing.”).
[^ 53] See 8 CFR 103.2(b)(8)(iv).
[^ 54] For example, USCIS generally provides an applicant for naturalization 30 days (33 if mailed) to respond to an RFE. See 8 CFR 335.7. See Volume 12, Citizenship and Naturalization, Part B, Naturalization Examination, Chapter 4, Results of the Naturalization Examination, Section B, Continuation of Examination, Subsection 1, Continuation to Request Evidence [12 USCIS-PM B.4(B)(1)].
[^ 55] Due to the relatively short processing times required by the Form I-539, a response time of only 30 days applies to RFEs for Form I-539 filings.
[^ 56] Due to the streamlined nature of the provisional unlawful presence waiver process and to avoid long delays in immigrant visa processing, a response time of 30 days applies to RFEs for the Form I-601A. Officers, in their discretion, may increase the response time for the Form I-601A after obtaining supervisory concurrence. This discretion should be used on a case-by-case basis when warranted by circumstances as determined by the officer and the supervisor.
[^ 57] Certain immigration benefits, such as refugee and asylum applications, are governed by different regulations and procedures regarding RFEs, NOIDs, denials, and failures to appear. Therefore, the guidance in this table does not apply to these immigration benefits governed by different regulations.
[^ 58] Certain immigration benefits, such as refugee and asylum applications, are governed by different regulations and procedures regarding RFEs, NOIDs, denials, and failures to appear. Therefore, the guidance in this section does not apply to these immigration benefits governed by different regulations.
[^ 59] See 8 CFR 204.309(a). See 8 CFR 204.309(c).
[^ 60] See 8 CFR 204.309(a). See 8 CFR 204.309(c).
[^ 61] See 8 CFR 245.18(i).
[^ 62] See 8 CFR 103.2(b)(16).
[^ 63] See 8 CFR 103.2(b)(16)(i).
[^ 64] However, if the officer determines that there is no legal basis for the benefit request, the officer generally denies the request. See Chapter 9, Rendering a Decision, Section B, Denials, Subsection 1, Denials Based on Lack of Legal Basis [1 USCIS-PM E.9(B)(1)].
[^ 65] USCIS generally issues RFEs when some required evidence is missing but may issue a NOID if all or most of the required evidence is missing. However, USCIS generally rejects incomplete benefit requests, including those with filing deficiencies, such as missing or invalid signatures. USCIS does not issue NOIDs for such filing deficiencies since the requests were never accepted for adjudicative review and therefore are not subject to approval or denial criteria. See 8 CFR 103.2(a)(7)(ii). See Part B, Submission of Benefit Requests, Chapter 6, Submitting Requests, Section B, Intake Processing [1 USCIS-PM B.6(B)].
[^ 66] For more information, see Chapter 8, Discretionary Analysis [1 USCIS-PM E.8].
[^ 67] See 8 CFR 103.2(b)(13).
[^ 68] See 8 CFR 103.2(b)(8)(iv). Officers adjudicating a benefit request may exercise their discretion to consider late responses to NOIDs to have been submitted timely if in their view circumstances warrant it.
[^ 69] See 8 CFR 103.8(b) (“[w]henever a person has the right or is required to do some act within a prescribed period after the service of a notice upon him and the notice is served by mail, 3 days shall be added to the prescribed period. Service by mail is complete upon mailing.”). See 8 CFR 103.8(a) (describing routine service by ordinary or electronic mail and personal service, performed by a government employee).
[^ 70] See 8 CFR 103.8(b) (“[w]henever a person has the right or is required to do some act within a prescribed period after the service of a notice upon him and the notice is served by mail, 3 days shall be added to the prescribed period. Service by mail is complete upon mailing.”).
[^ 72] See 8 CFR 103.2(b)(8)(iv).
[^ 73] Certain immigration benefits, such as refugee and asylum applications, are governed by different regulations and procedures regarding RFEs, NOIDs, denials, and failures to appear. Therefore, the guidance in this table does not apply to these immigration benefits governed by different regulations.
[^ 74] See 8 CFR 103.2(b)(6). USCIS’ acknowledgement of a withdrawal may not be appealed. See 8 CFR 103.2(b)(15).
[^ 75] See 8 CFR 103.2(b)(11).
[^ 76] See 8 CFR 103.2(b)(14).
[^ 77] Applications for asylum are not subject to denial under 8 CFR 103.2(b), like other benefit requests, generally. See 8 CFR 208.14(d).
[^ 78] The benefit requestor may not appeal a denial due to abandonment, but the benefit requestor may file a motion to reopen. See 8 CFR 103.2(b)(15). See Notice of Appeal or Motion (Form I-290B). A new proceeding will not be affected by the withdrawal or denial due to abandonment, but the facts and circumstances surrounding the prior benefit request will otherwise be material to the new benefit request. See 8 CFR 103.2(b)(15). See 8 CFR 1.2 (definition of benefit request).
[^ 79] See 8 CFR 103.2(b)(13).
Chapter 7 - Interviews [Reserved]
Chapter 8 - Discretionary Analysis
Many immigration benefits require the requestor[1] to demonstrate that the request merits a favorable exercise of discretion in order to receive the benefit.[2] For these benefits, a discretionary analysis is a separate, additional component of adjudicating the benefit request. Whether to favorably exercise discretion is typically assessed after an officer has determined that the requestor meets all applicable threshold eligibility requirements.
The discretionary analysis involves the review of all relevant, specific facts and circumstances in an individual case. However, there are limitations on how the officer may exercise discretion; the officer may not exercise discretion arbitrarily, inconsistently, or in reliance on biases or assumptions.
In some contexts, there are regulations and case law that outline certain factors that officers must review and use as a guide in making a discretionary determination. However, there is no exhaustive list of factors that officers must consider. To perform a discretionary analysis, officers must weigh all positive factors present in a particular case against any negative factors in the totality of the record.[3] The analysis must be comprehensive, specific to the case, and based on all relevant facts known at the time of adjudication. For complex or difficult cases, officers should consult with supervisors and local counsel.
A. Applicability
Congress generally provides discretionary authority explicitly in the statutory language that governs an immigration benefit. In some instances, however, discretionary authority is less explicit and must be inferred from the statutory language. Executive agencies may also outline their discretionary authority explicitly in regulations.[4]
Many immigration benefit requests are filed under provisions of law that require the favorable exercise of discretion to administer the benefit.[5] In these cases, the benefit requestor has the burden of demonstrating eligibility for the benefit sought and that USCIS should favorably exercise discretion.[6] Where an immigration benefit is discretionary, meeting the statutory and regulatory requirements alone does not entitle the requestor to the benefit sought.
Certain immigration benefits are not discretionary.[7] In these cases, if the requestor properly filed and meets the eligibility requirements then USCIS must approve the benefit request. There is no discretionary analysis as part of the adjudication, and these requests cannot be denied as a matter of discretion.
The following table provides a non-exhaustive overview of immigration benefits and whether discretion is involved in the adjudication of such benefits.
Benefit Type |
Discretion Involved (Yes or No) |
---|---|
Petition to classify an alien as a nonimmigrant worker[8] |
No (with some exceptions) |
Petition to classify an alien as a fiancé(e) of a U.S. citizen[9] |
Yes |
Application to extend or change nonimmigrant status[10] |
Yes |
Advance permission to enter as a nonimmigrant[11] |
Yes |
Humanitarian parole[12] |
Yes |
Temporary protected status[13] |
Yes |
Refugee status[14] |
Yes (with some exceptions)[15] |
Asylum[16] |
Yes |
Petition to classify an alien as a family-based immigrant[17] |
No (with some exceptions) |
Petition to classify an alien as an employment-based immigrant[18] |
Yes |
Petition to classify an alien as an immigrant investor[19] |
Yes |
Adjustment of status[20] |
Yes (with some exceptions)[21] |
Registration[22] |
No |
Recognition as an American Indian born in Canada[23] |
No |
Waivers of inadmissibility[24] |
Yes |
Consent to reapply for admission after deportation or removal[25] |
Yes |
Employment authorization[26] |
Yes (with some exceptions) |
Removal of conditions on permanent residence[27] |
No (with some exceptions)[28] |
Naturalization[29] |
No |
Application for a Certificate of Citizenship[30] |
No |
B. Overview of Discretion
1. Definition
The Board of Immigration Appeals (BIA) has described the exercise of discretion as:
-
A balancing of the negative factors evidencing the person’s undesirability as a permanent resident with the social and humane considerations presented on his or her behalf to determine whether relief appears in the best interests of this country.[31]
-
A matter of administrative grace where the applicant has the burden of showing that discretion should be exercised in his or her favor.[32]
-
A consideration of negative factors and the need for the applicant to offset such factors by showing unusual or even outstanding equities.[33]
These characterizations imply that the exercise of discretion cannot be arbitrary, inconsistent, or dependent on intangible or imagined circumstances.
In short, discretion is defined as the ability or power to exercise sound judgment in decision-making. While the discretionary analysis gives the officer some autonomy in the way in which he or she decides a particular case after all applicable eligibility requirements are established, that autonomy may only be exercised within the confines of certain legal restrictions. These restrictions define the scope of the officer’s discretionary authority.[34]
2. Adjudicative Discretion
There are two broad types of discretion that may be exercised in the context of immigration law: prosecutorial (or enforcement) discretion[35] and adjudicative discretion. The scope of discretion is defined by what type of discretionary decision is being made. This chapter only discusses the exercise of adjudicative discretion.
Adjudicative discretion requires an officer to decide whether to exercise discretion favorably when adjudicating a request for an immigration benefit. This decision is guided by the applicable statutes, regulations, and policies that outline the eligibility requirements for the benefit and the facts present in the case at issue. The U.S. Supreme Court has referred to adjudicative discretion as merit-deciding discretion.[36]
In general, an officer may exercise favorable adjudicative discretion to approve a benefit request when the requestor has met the applicable eligibility requirements and negative factors impacting discretion are not present.[37] An exercise of discretion to grant a benefit may also be appropriate when the requestor has met the eligibility requirements for the benefit, and the positive factors outweigh the negative factors. An exercise of discretion to deny, rather than to grant, may likewise be appropriate when the requestor has met the requirements of the request, but negative factors found in the course of the adjudication outweigh the positive factors.
3. Who Exercises Discretion
Congress expressly granted discretion to the Secretary of Homeland Security in deciding when to grant certain immigration benefits. For example, the Immigration and Nationality Act (INA) states: “The Secretary of Homeland Security or the Attorney General, in the Secretary’s or the Attorney General’s discretion and under such regulations as the Secretary or the Attorney General may prescribe, may adjust to the status of an alien lawfully admitted for permanent residence the status of any alien granted asylum . . . .”[38]
The Secretary’s discretionary power is delegated to the officer, through DHS and USCIS. Therefore, when an officer exercises discretion in adjudicating a request for an immigration benefit, the officer is exercising discretion on behalf of the Secretary of Homeland Security.
In many cases, the INA still refers to the Attorney General’s discretion because the statutory text has not been changed to reflect the creation of DHS and the transfer of many functions from the U.S. Department of Justice (DOJ) to DHS.[39] If USCIS has adjudicative authority over the benefit, the statute should be read as conferring the power to exercise discretion on the Secretary of Homeland Security.[40]
4. Discretion
Eligibility Threshold
For discretionary benefits, there is never discretion to grant an immigration benefit if the benefit requestor has not first met all applicable threshold eligibility requirements.
It is legally permissible to deny an application as a matter of discretion without determining whether the requestor is otherwise eligible for the benefit.[41] However, the record is essentially incomplete if USCIS denies an application, petition, or request in its exercise of discretion without making a determination concerning eligibility.
Therefore, as a matter of policy, officers should generally make a specific determination regarding eligibility before addressing the exercise of discretion. Where denying the benefit request is appropriate, the officer should generally include in the denial letter his or her determination on all eligibility requirements, including but not limited to discretionary grounds, if applicable, so that the reasons for the ultimate denial are clearly reflected in the record.
Lack of Negative Factors
A person’s threshold eligibility for the benefit sought is generally also a positive factor. Therefore, absent any negative factors, USCIS ordinarily exercises discretion positively.[42] Generally, if there are no negative factors to weigh against that positive factor, denial of the benefit would be an inappropriate use of discretion.
C. Adjudicating Discretionary Benefits
When adjudicating a discretionary benefit, the officer should first determine whether the requestor meets all threshold eligibility requirements. For example, in adjudicating an application for adjustment of status under INA 245(a), the officer should first determine:
-
Whether the applicant was inspected and admitted or paroled or has an approved petition as a VAWA self-petitioner;
-
Is eligible to receive an immigrant visa;
-
Is admissible to the United States for permanent residence; and
-
Has an immigrant visa immediately available to him or her at the time he or she files the adjustment application.[43]
If the officer finds that the requestor does not meet the eligibility requirements but may be eligible for a waiver, exemption, or other form of relief, the officer should determine whether the requestor qualifies for a waiver, exemption, or other form of relief. Not all applications are concurrently filed, and in some instances, applicants must file a separate waiver application or application for relief and have that application approved before the applicant qualifies for the benefit.
If the officer finds that the requestor meets the eligibility requirements because of an approved waiver, exemption, or other form of relief, the officer must then determine whether the request should be granted as a matter of discretion. If the officer finds that the requestor does not meet all applicable eligibility requirements, the officer can still include a discretionary analysis in the denial. The discretionary determination is the final step in the adjudication of a benefit request. Adding a discretionary analysis to a denial is useful if an appellate body on review disagrees with the officer’s conclusion that the requestor failed to meet the threshold eligibility requirements. In such a situation, the discretionary denial may still stand.
1. Basic Adjudication Steps
Officers should generally follow a three-step process when adjudicating a benefit request involving a discretionary analysis.
Basic Adjudication Steps Involving Discretion |
|
---|---|
Step One |
Fact finding |
Step Two |
Determine whether requestor meets the threshold eligibility requirements |
Step Three |
Conduct discretionary analysis |
Fact Finding[44]
Fact finding refers to the process of gathering and assessing evidence. The focus of fact finding should be to obtain credible evidence relevant to a requestor’s eligibility for the benefit, including the discretionary determination. If a requestor is interviewed, the officer should elicit information pertinent to fact finding during the interview. As part of fact finding, officers should evaluate relevant information present in the record. Depending on the benefit sought, such information might include, but is not limited to:
-
Immigration history;
-
Family ties in the United States;
-
Any serious medical conditions;
-
Any criminal history;
-
Other connections to the community; or
-
Information indicating a public safety or national security concern.
Background information may be relevant for eligibility determinations and to the exercise of discretion.
For discretionary benefits, the benefit requestor has the burden of showing that a favorable exercise of discretion is warranted through the submission of evidence.[45] In cases where negative factors are present, the officer may ask the requestor directly why he or she warrants a favorable exercise of discretion. The officer should document any response, or lack thereof, in the record.
Determining Whether Requestor First Meets Threshold Eligibility Requirements
The discretionary analysis is the final step in the adjudication. Generally, the officer should first determine whether the requestor meets all threshold eligibility requirements before beginning the discretionary analysis. If the officer determines the requestor has not met the eligibility requirements for the benefit sought, the officer may deny the request without completing a discretionary analysis. However, an officer may include a discretionary analysis if a discretionary denial would be warranted even if the requestor had met the threshold statutory and regulatory requirements.
In the process of determining whether the requestor has met the eligibility requirements for the benefit sought, the officer might find that certain facts related to threshold eligibility for the specific benefit may also be relevant to the discretionary determination.
For example, if an officer finds that an adjustment applicant was convicted of a crime, the applicant might be inadmissible. The criminal conviction may also affect the discretionary analysis.
Conducting Discretionary Analysis
The act of exercising discretion involves the weighing of positive and negative factors and considering the totality of the circumstances in the specific case. In the immigration context, the goal is to assess whether, based on the totality of the circumstances, the person warrants a favorable exercise of discretion.[46]
2. Identifying Discretionary Factors
Any facts related to the person’s conduct, character, family ties, other lawful ties to the United States, immigration status, or any other humanitarian concerns may be appropriate factors to consider in the exercise of discretion. A person’s conduct can include how he or she entered the United States and what he or she has done since arrival, such as employment, schooling, or any evidence of criminal activity. Whether the person has family members living in the United States also is relevant to the discretionary analysis. Ties to the United States may include owning real estate or a business; the conduct of that business (including maintenance of such business in compliance with the law) may also be relevant to the discretionary analysis. Humanitarian concerns may include, but are not limited to, health issues.
Precedent case law provides guidance on how to consider evidence and weigh the positive and negative factors present in a case. These precedent decisions and USCIS guidance provide a framework to assist officers in arriving at decisions which are consistent and fair.[47]
Factors That May Be Considered
There are a number of factors or factual circumstances that are generally considered when conducting a discretionary analysis. Factors may include, but are not limited to:
-
Whether the requestor is eligible for the benefit sought;[48]
-
The applicant or beneficiary’s ties to family members in the United States and the closeness of the underlying relationships;[49]
-
Hardship due to an adverse decision;[50]
-
The applicant or beneficiary’s value and service to the community;[51]
-
Length of the applicant or beneficiary’s lawful residence in the United States and status held during that residence, including the age at which the person began residing in the United States;[52]
-
Service in the U.S. armed forces;[53]
-
History of employment;[54]
-
Property or business ties in the United States;[55]
-
History of taxes paid;
-
Nature and underlying circumstances of any inadmissibility grounds at issue, the seriousness of the violations, and whether the applicant or beneficiary is eligible for a waiver of inadmissibility or other form of relief;[56]
-
Likelihood that lawful permanent resident (LPR) status will ensue soon;
-
Evidence regarding respect for law and order, good character, and intent to hold family responsibilities (for example, affidavits from family, friends, and responsible community representatives);[57]
-
Criminal history (in the United States and abroad) and whether the applicant or beneficiary has rehabilitated and reformed;[58]
-
Community service beyond any imposed by the courts;
-
Whether the person is under an unexecuted administratively final removal, deportation, or exclusion order;[59]
-
Public safety or national security concerns;[60]
-
Moral depravity or criminal tendencies reflected by a single serious crime or an ongoing or continuing criminal record, with attention to the nature, scope, seriousness, and recent occurrence of criminal activity.[61]
-
Findings of juvenile delinquency;[62]
-
Compliance with immigration laws;[63]
-
Previous instances of fraud or false testimony in dealings with USCIS or any government agency;
-
Marriage to a U.S. citizen or LPR for the primary purpose of circumventing immigration laws;[64]
-
Other indicators of an applicant or beneficiary’s character.[65]
This is a non-exhaustive list of factors; the officer may consider any relevant fact in the discretionary analysis.
3. Weighing Factors
The act of exercising discretion involves weighing both positive and negative factors and considering the totality of the circumstances in the case before making a decision. Whether a favorable exercise of discretion is warranted is case-specific and depends on the evidence of positive and negative factors submitted by the requestor. As the negative factors grow more serious, a favorable exercise of discretion may not be warranted without the existence of unusual or outstanding equities in the case.[66]
Totality of the Circumstances: Evaluating the Case-Specific Considerations for Each Factor
An officer must consider the totality of the facts and circumstances of each individual case involving discretionary benefit requests. To do so, officers should ensure discretionary factors are considered in the context of all factors in the case.
There is no formula for determining the weight to be given a specific positive or negative factor. Officers should not attempt to assign numbers or points to a specific factor to determine if one factor is more or less favorable than another. Officers should consider each factor separately and then all the factors as a whole. The negative and positive factors should be balanced against each other and then evaluated cumulatively.[67] The weight given to each factor may vary depending on the facts of a particular case as well as the relationship of the factor to other factors in the analysis.
Discretionary factors are often interrelated. Officers must therefore determine whether each particular factor is positive or negative and how it affects the other factors under consideration. Some factors are generally given more weight than others. A small number of positive factors may overcome a larger number of negative factors, and vice versa, depending on the specific factors.
For example, when weighing the positive and negative factors, the officer should not consider the various factors individually, in isolation from one another.[68] When considering each factor individually, without considering how all the factors relate to each other, it becomes difficult to weigh the positive and negative factors properly.
Once the officer has weighed each factor individually, the officer should consider all the factors cumulatively to determine whether the unfavorable factors outweigh the favorable ones. If, after weighing all the factors, the officer determines that the positive factors outweigh the negative factors, then the requestor merits a favorable exercise of discretion. If the negative factors outweigh the positive factors, then the officer may decline to favorably exercise discretion and deny the benefit request. There may be instances where the gravity of a negative factor is of such significance that the factor by itself weighs heavily against a favorable exercise of discretion.[69]
Cases that are denied on the basis of an unfavorable exercise of discretion must include an officer’s explanation of why USCIS is not exercising discretion in the requestor’s favor.[70] The denial notice must clearly set forth the positive and negative factors considered and explain why the negative factors outweigh the positive factors.
4. Supervisory Review[71]
Officers should discuss complex or difficult cases with their supervisors, as needed, particularly those involving criminality or national security issues, regardless of whether the outcome is favorable or unfavorable to the applicant. As appropriate, supervisors may raise issues with USCIS local counsel.
Sometimes a case, especially when coupled with government errors or delay and compelling humanitarian factors, may justify an exercise of discretion resulting in an extraordinarily favorable outcome for the applicant. Officers considering such action should carefully confirm the availability of such action under the law, weigh the factors as in every discretionary decision, consult with supervisors or counsel, and make a record of the analysis and consultation.
D. Documenting Discretionary Determinations
When issuing a decision that involves a discretionary determination, a careful explanation of the officer’s findings and analysis (communicating the positive and negative factors considered and how the officer weighed these factors) helps ensure that the decision is legally sufficient and appropriate. The discretionary determination gives the officer authority to ultimately approve a benefit or form of relief or deny a benefit or form of relief when the applicant otherwise meets eligibility requirements. Officers, however, cannot exercise that authority arbitrarily or capriciously.
Favorable Exercise of Discretion
If no negative factors are present, the officer may provide a simple statement in the file noting the absence of negative factors (for example, comments indicating that the applicant is eligible, that there are no negative factors, and that therefore USCIS grants the benefit in the exercise of discretion).
If an officer grants a benefit in the exercise of discretion where negative factors are present but the positive factors outweigh the negative factors, the file should contain a record of the officer’s deliberations. The officer should clearly annotate the favorable factors in the file. The officer should also annotate the file regarding any consultations that supported the approval in complex or difficult cases. In some situations, the file annotation may be the only record or documentation for other officers to understand the reasons for the decision.
The officer should indicate the rationale for the decision in a clear manner so that it is easily understandable to others reviewing the file. This may include the officer addressing the discretionary issues in the written decision or by making an annotation in the file.
Unfavorable Exercise of Discretion[72]
If negative factors outweigh the positive factors and USCIS denies the benefit request, the written decision must contain an analysis of the factors considered in exercising discretion, where possible.[73]
Negative factors must never be analyzed in a generalized way. The decision must address negative factors on an individualized basis, applying the totality of the circumstances to the specific facts of the case. The decision should specify both the positive and negative factors that the officer identified and considered in support of the decision and should explain how the officer weighted the different factors. The denial notice should set forth the rationale for the decision so that the officer’s deliberation may be understood by the requestor as well as any administrative reviewer (such as the Administrative Appeals Office or immigration judge) and the federal courts.
Articulating Analysis Separately for Discretion and Threshold Eligibility Requirements
In cases involving the negative exercise of discretion, officers should generally articulate clearly the legal analysis of whether the applicant meets the threshold eligibility requirements and then, separately, the discretionary analysis.
Denying Benefit Requests as a Matter of Discretion
If the officer denies a benefit request as a matter of discretion, the officer generally must, in the written notice to the requestor:[74]
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Indicate the decision to deny was made as a matter of discretion;
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Identify, specifically, each positive factor presented by the facts of the case;
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Identify, specifically, each negative factor;
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Explain the relative decisional weight given to each negative and positive factor; and
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Explain the cumulative weight given to the negative and positive factors, and reason for the outcome.
By including the appropriate articulation of discretionary determinations in USCIS decision-making, officers enhance the quality of adjudications and provide appropriate explanation to the requestor.
Footnotes
[^ 1] For purposes of this Policy Manual part, the term requestor means the person, organization, or business requesting an immigration benefit from USCIS. This may include an applicant or petitioner, depending on the request.
[^ 2] See Matter of Patel (PDF), 17 I&N Dec. 597 (BIA 1980). See the program-specific Policy Manual part to determine whether the adjudication of a benefit request requires the exercise of discretion.
[^ 3] See Section C, Adjudicating Discretionary Benefits, Subsection 3, Weighing Factors [1 USCIS-PM E.8(C)(3)].
[^ 4] For example, see Kucana v. Holder, 558 U.S. 233 (2010) (comparing discretion provided in statutory language against regulations promulgated by the U.S. Department of Justice).
[^ 5] See, for example, INA 245(a) (adjustment of status).
[^ 6] See INA 291. See Matter of Patel (PDF), 17 I&N Dec. 597 (BIA 1980). See Matter of Leung (PDF), 16 I&N Dec. 12 (BIA 1976). See Matter of Arai (PDF), 13 I&N Dec. 494 (BIA 1970).
[^ 7] See, for example, INA 316 (naturalization).
[^ 8] See Petition for a Nonimmigrant Worker (Form I-129). See INA 101(a)(15). See INA 214 and 8 CFR 214.
[^ 9] See Petition for Alien Fiancé(e) (Form I-129F). See INA 101(a)(15)(K). See INA 214(d) and INA 214(r). See 8 CFR 214.2(k).
[^ 10] See Application To Extend/Change Nonimmigrant Status (Form I-539). See INA 214 and 8 CFR 214.
[^ 11] See Application for Advance Permission to Enter as a Nonimmigrant (Form I-192). See INA 212(d)(3)(A).
[^ 12] See Application for Travel Document (Form I-131). See INA 212(d)(5)(A).
[^ 13] See Application for Temporary Protected Status (Form I-821). See INA 244 and 8 CFR 244.
[^ 14] See Refugee/Asylee Relative Petition (Form I-730). See INA 207 and 8 CFR 207.
[^ 15] Except for following-to-join refugee adjudications. See 8 CFR 207.7.
[^ 16] See Application for Asylum and for Withholding of Removal (Form I-589). See INA 208 and 8 CFR 208. See Matter of Pula (PDF), 19 I&N Dec. 467, 471 (BIA 1987).
[^ 17] See Petition for Alien Relative (Form I-130). See INA 203(a) and INA 204(a)(1)(A)-(D). See 8 CFR 204.
[^ 18] See Immigrant Petition for Alien Workers (Form I-140). See INA 203(b) and INA 204(a)(1)(E)-(G). See 8 CFR 204.
[^ 19] See Immigrant Petition by Alien Investor (Form I-526). See INA 203(b) and INA 204(a)(1)(H). See 8 CFR 204.
[^ 20] See Application to Register Permanent Residence or Adjust Status (Form I-485). For more information on how to conduct a discretionary analysis in the context of an adjustment application, see Volume 7, Adjustment of Status, Part A, Adjustment of Status Policies and Procedures, Chapter 10, Legal Analysis and Use of Discretion [7 USCIS-PM A.10].
[^ 21] See, for example, INA 245(a) and INA 209(b). Exceptions include adjustment of status based on Nicaraguan Adjustment and Central American Relief Act of 1997 (NACARA), Title II of Pub. L. 105-100 (PDF), 111 Stat. 2160, 2193 (November 19, 1997); refugee-based adjustment under INA 209(a)(2); adjustment of status based on Haitian Refugee Immigration Fairness Act of 1998 (HRIFA), Section 902 of Division A, Title IX of Pub. L. 105-277 (PDF), 112 Stat. 2681, 2681-538 (October 21, 1998); adjustment of status based on Liberian Refugee Immigration Fairness (LRIF) law, Section 7611 of the National Defense Authorization Act for Fiscal Year 2020, Pub. L. 116-92 (PDF), 113 Stat. 1198, 2309 (December 20, 2019).
[^ 22] See Application to Register Permanent Residence or Adjust Status (Form I-485). See INA 249. See 8 CFR 249. For more information, see Volume 7, Adjustment of Status, Part O, Registration [7 USCIS-PM O].
[^ 23] See INA 289 and 8 CFR 289.
[^ 24] See Application for Waiver of Grounds of Inadmissibility (Form I-601). See Application for Provisional Unlawful Presence Waiver (Form I-601A). See Application by Refugee for Waiver of Grounds of Excludability (Form I-602). See, for example, INA 209(c), INA 212(a)(9)(B)(v), INA 212(a)(9)(C)(iii), and INA 212(g)-(i). For more information on how to conduct a discretionary analysis in the context of a waiver application, see Volume 9, Waivers and Other Forms of Relief, Part A, Waiver Policies and Procedures, Chapter 5, Discretion [9 USCIS-PM A.5].
[^ 25] See Application for Permission to Reapply for Admission into the United States After Deportation or Removal (Form I-212). See INA 212(a)(9)(A)(iii) and INA 212(a)(9)(C)(ii).
[^ 26] See Application for Employment Authorization (Form I-765). See INA 274A. See 8 CFR 274a.12. For more information, see Volume 10, Employment Authorization [10 USCIS-PM].
[^ 27] See Petition to Remove Conditions on Residence (Form I-751). See Petition by Investor to Remove Conditions on Permanent Resident Status (Form I-829). See INA 216 and INA 216A. See 8 CFR 216.
[^ 28] When a family-based conditional permanent resident files a Petition to Remove Conditions on Residence (Form I-751) as a waiver request based on termination of marriage, battery or extreme cruelty, or extreme hardship, it is a discretionary decision. See INA 216(c)(4).
[^ 29] See Application for Naturalization (Form N-400). See INA 316. For more information, see Volume 12, Citizenship and Naturalization [12 USCIS-PM].
[^ 30] See Application for Certificate of Citizenship (Form N-600). See INA 301, INA 309 and INA 320. For more information, see Volume 12, Citizenship and Naturalization, Part K, Certificates of Citizenship and Naturalization [12 USCIS-PM K].
[^ 31] See Matter of Marin (PDF), 16 I&N Dec. 581, 584 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 300 (BIA 1996).
[^ 32] See Matter of Patel (PDF), 17 I&N Dec. 597 (BIA 1980) (adjustment of status). See Von Pervieux v. INS, 572 F.2d 114, 118 (3rd Cir. 1978). See Ameeriar v. INS, 438 F.2d 1028, 1030 (3rd Cir. 1971). See Matter of Marques (PDF), 16 I&N Dec. 314 (BIA 1977).
[^ 33] See Matter of Ortiz-Prieto (PDF), 11 I&N Dec. 317 (BIA 1965).
[^ 34] See Subsection 4, Discretion [1 USCIS-PM E.8(B)(4)].
[^ 35] Prosecutorial discretion is a decision to enforce or not enforce the law against someone. Prosecutorial discretion is exercised when an agency makes a decision with respect to enforcing the law. USCIS, along with other DHS agencies such as U.S. Immigration and Customs Enforcement and U.S. Customs and Border Protection, has the authority to exercise prosecutorial discretion related to immigration enforcement actions it may take, particularly in the context of initiating removal proceedings through the issuance of a non-mandatory Notice to Appear. Prosecutorial discretion does not decrease USCIS’ commitment to enforcing the immigration laws. Rather, it is a means to use agency resources in a way that best accomplishes the mission of administering and enforcing the immigration laws of the United States.
[^ 36] See INS v. Doherty (PDF), 502 U.S. 314 (1992).
[^ 37] See Matter of Arai (PDF), 13 I&N Dec. 494, 496 (BIA 1970) (“In the absence of adverse factors, adjustment will ordinarily be granted, still as a matter of discretion.”). See Matter of Pula (PDF), 19 I&N Dec. 467, 474 (BIA 1987) (“In the absence of any adverse factors, however, asylum should be granted in the exercise of discretion.”).
[^ 38] See INA 209(b).
[^ 39] As of March 1, 2003, in accordance with Section 1517 of the Homeland Security Act of 2002 (HSA), Pub. L. 107-296 (PDF), 116 Stat. 2135, 2311 (November 25, 2002), any reference to the Attorney General in a provision of the INA describing functions that were transferred from the Attorney General or other DOJ official to DHS by the HSA “shall be deemed to refer to the Secretary” of Homeland Security. See 6 U.S.C. 557 (codifying Section 1517 of the HSA).
[^ 40] See 6 U.S.C. 275.
[^ 41] See INS v. Abudu (PDF), 485 U.S. 94, 105 (1988). See INS v. Bagamasbad (PDF), 429 U.S. 24, 26 (1976). See INS v. Rios-Pineda (PDF), 471 U.S. 444 (1985).
[^ 42] See Matter of Arai (PDF), 13 I&N Dec. 494, 496 (BIA 1970). See Matter of Lam (PDF), 16 I&N Dec. 432 (BIA 1978).
[^ 43] See INA 245(a). See Volume 7, Adjustment of Status, Part B, 245(a) Adjustment, Chapter 2, Eligibility Requirements [7 USCIS-PM B.2].
[^ 44] See Chapter 6, Evidence [1 USCIS-PM E.6].
[^ 45] See 8 CFR 103.2(b)(1).
[^ 46] See Matter of Marin (PDF), 16 I&N Dec. 581, 586-587 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990).
[^ 47] See Matter of Arai (PDF), 13 I&N Dec. 494, 496 (BIA 1970). See Matter of Lam (PDF), 16 I&N Dec. 432, 434 (BIA 1978). See Matter of Marin (PDF), 16 I&N Dec. 581, 584 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996).
[^ 48] See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996) (In the context of waivers of inadmissibility requiring a showing of extreme hardship: “. . . those found eligible for relief under section 212(h)(1)(B) will by definition have already established extreme hardship to qualified family members, which would be a factor favorable to the alien in exercising discretion.”).
[^ 49] See Matter of Arai (PDF), 13 I&N Dec. 494, 496 (BIA 1970). See Matter of Marin (PDF), 16 I&N Dec. 581, 584 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301-302 (BIA 1996) (“. . . if the alien has relatives in the United States, the quality of their relationship must be considered in determining the weight to be awarded this equity.”).
[^ 50] See Matter of Arai (PDF), 13 I&N Dec. 494, 496 (BIA 1970). See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996).
[^ 51] See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990).
[^ 52] See Matter of Arai (PDF), 13 I&N Dec. 494, 496 (BIA 1970). See Matter of Marin (PDF), 16 I&N Dec. 581, 584-85 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996). Residence must be lawful to be considered a positive factor. See Matter of Lee (PDF), 17 I&N Dec. 275, 278 (Comm. 1978).
[^ 53] See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996).
[^ 54] See Matter of Lam (PDF), 16 I&N Dec. 432, 434 (BIA 1978). See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301-302 (BIA 1996) (“. . . if the alien has a history of employment, it is important to consider the type of employment and its length and stability.”).
[^ 55] See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996).
[^ 56] See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996).
[^ 57] See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990).
[^ 58] See Matter of Marin (PDF), 16 I&N Dec. 581, 585 (BIA 1978). See Matter of Buscemi (PDF), 19 I&N Dec. 628, 633 (BIA 1988). See Matter of Edwards (PDF), 20 I&N Dec. 191, 195 (BIA 1990). See Matter of Mendez-Morales (PDF), 21 I&N Dec. 296, 301 (BIA 1996). However, reformation is not an absolute prerequisite to a favorable exercise of discretion. Rather, the discretionary analysis must be conducted on a case-by-case basis, with rehabilitation a factor to be considered in the exercise of discretion. See Matter of Edwards (PDF), 20 I&N Dec. 191, 196 (BIA 1990) (considering rehabilitation a significant factor in view of the nature and extent of the respondent’s criminal history, which spanned 10 years).
[^ 59] USCIS generally does not exercise discretion favorably to grant adjustment where the adjustment applicant has an unexecuted removal order. For information on the effect of an unexecuted removal order of an arriving alien on adjustment of status, see Volume 7, Adjustment of Status, Part A, Adjustment of Status Policies and Procedures, Chapter 10, Legal Analysis and Use of Discretion, Section B, Discretion, Subsection 2, Issues and Factors to Consider [7 USCIS-PM A.10(B)(2)].
[^ 60] For definitions of public safety and national security concerns, see Updated Guidance for the Referral of Cases and Issuance of Notices to Appear (NTAs) in Cases Involving Inadmissible and Deportable Aliens (PDF) (PDF, 599.37 KB), PM-602-0050.1, issued June 28, 2018.
[^ 61] The officer should not go behind the record of conviction to reassess an applicant’s ultimate guilt or innocence, but rather inquire into the circumstances surrounding the commission of the crime in order to determine whether a favorable exercise of discretion is warranted. See Matter of Edwards (PDF), 20 I&N Dec. 191, 197 (BIA 1990).
[^ 62] USCIS considers findings of juvenile delinquency on a case-by-case basis, based on the totality of the evidence, to determine whether a favorable exercise of discretion is warranted. Therefore, an adjustment applicant must disclose all arrests and charges. If any arrest or charge was disposed of as a matter of juvenile delinquency, the applicant must include the court or other public record that establishes this disposition. See Volume 7, Adjustment of Status, Part A, Adjustment of Status Policies and Procedures, Chapter 4, Documentation, Section A, Initial Evidence, Subsection 7, Certified Copies of Arrest Records and Court Dispositions [7 USCIS-PM A.4(A)(7)]. For more information, see Volume 7, Adjustment of Status, Part B, 245(a) Adjustment [7 USCIS-PM B] and Part F, Special Immigrant-Based Adjustment, Chapter 7, Special Immigrant Juveniles, Section C, Eligibility Requirements, Subsection 4, Admissibility and Waiver Requirements [7 USCIS-P