[Federal Register Volume 67, Number 156 (Tuesday, August 13, 2002)]
[Proposed Rules]
[Pages 52627-52633]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 02-20403]


 ========================================================================
 Proposed Rules
                                                 Federal Register
 ________________________________________________________________________
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 This section of the FEDERAL REGISTER contains notices to the public of 
 the proposed issuance of rules and regulations. The purpose of these 
 notices is to give interested persons an opportunity to participate in 
 the rule making prior to the adoption of the final rules.
 
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 

  Federal Register / Vol. 67, No. 156 / Tuesday, August 13, 2002 / 
Proposed Rules  

[[Page 52627]]



DEPARTMENT OF JUSTICE

Immigration and Naturalization Service

8 CFR Parts 3, 212, and 240

[EOIR No. 130I; AG Order No. 2607-2002]
RIN 1125-AA33


Executive Office for Immigration Review; Section 212(c) Relief 
for Aliens With Certain Criminal Convictions Before April 1, 1997

AGENCY: Executive Office for Immigration Review, Justice.

ACTION: Proposed rule.

-----------------------------------------------------------------------

SUMMARY: This proposed rule would amend the regulations of the 
Executive Office for Immigration Review (EOIR) and the Immigration and 
Naturalization Service (INS) by establishing procedures for lawful 
permanent residents (LPRs) with certain criminal convictions arising 
from plea agreements reached prior to a verdict at trial to apply for 
relief from deportation or removal pursuant to former section 212(c) of 
the Immigration and Nationality Act. It also sets forth procedures and 
deadlines for filing special motions to seek such relief before an 
Immigration Judge or the Board of Immigration Appeals for LPRs 
currently in proceedings or under final orders of deportation or 
removal.

DATES: Written comments must be submitted on or before October 15, 
2002.

ADDRESSES: Please submit written comments to Charles Adkins-Blanch, 
General Counsel, Executive Office for Immigration Review, 5107 Leesburg 
Pike, Suite 2400, Falls Church, Virginia 22041. E-mail comments may be 
submitted to the following e-mail address: [email protected]>.

FOR FURTHER INFORMATION CONTACT: For matters relating to the Executive 
Office for Immigration Review: Charles Adkins-Blanch, General Counsel, 
Executive Office for Immigration Review, 5107 Leesburg Pike, Suite 
2400, Falls Church, Virginia 22041, telephone (703) 305-0470 (not a 
toll-free call). For matters relating to the Immigration and 
Naturalization Service: Daniel S. Brown, Office of the General Counsel, 
Immigration and Naturalization Service, 425 I Street, NW., Room 6100, 
Washington, DC. 20536, telephone (202) 514-2895 (not a toll-free call).

SUPPLEMENTARY INFORMATION: This proposed rule would permit certain 
lawful permanent residents (LPRs) who have pleaded guilty or nolo 
contendere to crimes before April 1, 1997, to seek relief, pursuant to 
former section 212(c) of the Immigration and Nationality Act (INA or 
Act), from being deported or removed from the United States on account 
of those pleas. Under the proposed rule, eligible LPRs currently in 
immigration proceedings or former LPRs under a final order of 
deportation or removal could file a request to apply for relief under 
former section 212(c) of the Act, as in effect on the date of their 
plea, regardless of the date the plea was entered by the court.
    Until the recent Supreme Court decision in INS v. St. Cyr, 533 U.S. 
289 (2001), the Department had relied upon the date on which the alien 
was placed into deportation or removal proceedings to determine whether 
or not an LPR was eligible to apply for section 212(c) relief, not the 
date of the alien's conviction. This proposed rule would allow aliens 
with prior criminal pleas to apply for waivers under former section 
212(c), under the law as it existed at the time of their pleas, in 
light of the Court's interpretation of the law in St. Cyr. The 
Department would continue to treat convictions entered as the result of 
a trial as it had prior to St. Cyr. Former LPRs who are under a final 
order of deportation or removal would also be eligible to apply for 
relief under former section 212(c) of the INA as it existed at the time 
of their pleas. This proposed rule is applicable only to certain 
eligible aliens who were convicted by pleas made prior to April 1, 
1997.

What Is the Historical Background of This Rule?

    Former section 212(c) of the INA. Since 1996, section 212(c) of the 
INA has undergone two major changes, the first one made by the 
Antiterrorism and Effective Death Penalty Act of 1996 (AEDPA), Pub. L. 
No. 104-132, 110 Stat. 1214, and the second by the Illegal Immigration 
Reform and Immigrant Responsibility Act of 1996 (IIRIRA), Pub. L. No. 
104-208, Div. C, 110 Stat. 3009-546. The first amendment narrowed the 
availability of the waiver by making LPRs with certain kinds of 
criminal convictions ineligible. The second amendment eliminated the 
section 212(c) waiver entirely for LPRs placed into removal proceedings 
on or after April 1, 1997, and substituted a somewhat similar form of 
relief known as cancellation of removal. See INA Sec. 240A(a), 8 U.S.C. 
1229b.
    These amendments of section 212(c) generated extensive litigation, 
as discussed below, culminating in the Supreme Court's recent decision 
in St. Cyr. This rule consolidates the Department's interpretation of 
the availability of the section 212(c) waiver for LPRs in light of this 
litigation.
    Before the comprehensive revision of the INA by IIRIRA and AEDPA, 
section 212(c) provided that LPRs who temporarily proceeded abroad 
voluntarily and not under an order of deportation, and who were 
returning to a lawful unrelinquished domicile in the United States of 
seven consecutive years, could be admitted to the United States in the 
discretion of the Attorney General. 8 U.S.C. 1182(c) (1994). This form 
of relief was discretionary, but, if granted, allowed the LPR to remain 
in the United States notwithstanding the prior conviction. Judicial 
interpretation of former section 212(c) permitted the waiver of certain 
grounds of deportability as well as certain grounds of excludability 
(now known as inadmissibility).
    Litigation on eligibility for section 212(c) relief. In AEDPA, 
Congress significantly restricted the availability of discretionary 
relief from deportation under section 212(c). Section 440(d) of AEDPA 
made aliens ineligible for relief under section 212(c) if they were 
deportable because of convictions for certain criminal offenses, 
including aggravated felonies, controlled substance offenses, certain 
firearms offenses, espionage, or more than one crime of moral 
turpitude.
    On February 21, 1997, former Attorney General Janet Reno concluded 
that section 440(d) applied to (and thereby rendered ineligible for 
section 212(c) relief) all aliens who had committed one of the 
specified offenses and who had not finally been granted section 212(c) 
relief before the date

[[Page 52628]]

AEDPA was enacted, including those who were already in deportation 
proceedings or who had already applied for section 212(c) relief at the 
time of the AEDPA's enactment. See Matter of Soriano, 21 I. & N. Dec. 
516 (BIA 1996, A.G. 1997).
    The Soriano issue gave rise to widespread litigation in almost 
every circuit on several time and reliance-related eligibility issues. 
These issues included the possible relevance of various other dates in 
determining whether or not a particular alien was eligible to apply for 
section 212(c) relief: the date the alien was placed into proceedings; 
the date the alien applied for section 212(c) relief; the date any 
relevant crimes were committed; and the date any relevant pleas or 
convictions were entered. See 66 FR 6436, 6437-38 (Jan. 22, 2001) for a 
more detailed summary of this litigation.
    Most of the courts of appeals held that, despite the changes made 
by AEDPA, aliens who had filed applications for section 212(c) relief 
before the enactment of AEDPA were still eligible for that relief. One 
court further held that AEDPA did not apply to aliens who had been 
placed into deportation proceedings before the enactment of AEDPA, even 
if they did not actually request section 212(c) relief until after 
AEDPA was enacted.
    With respect to aliens who were first put into proceedings after 
the enactment of AEDPA, several courts held that AEDPA section 440(d) 
foreclosed section 212(c) relief for those aliens, even if their 
criminal convictions occurred before the enactment of AEDPA. Some other 
courts, however, had concluded that AEDPA should not be interpreted to 
foreclose section 212(c) relief, at least with respect to aliens who 
had pleaded guilty and were convicted of crimes prior to AEDPA in 
reliance on the existing immigration laws--at a time when those 
convictions did not disqualify the alien from eligibility to apply for 
section 212(c) relief.
    The Department's Soriano regulation. In response to this extensive 
litigation, the Department issued a rule creating a uniform procedure 
for applying the law, as amended by AEDPA, with respect to aliens who 
had been placed into proceedings before that law was enacted (April 24, 
1996). See 66 FR 6436 (Jan. 22, 2001) (codified at 8 CFR 3.44) (the 
Soriano rule). That rule allowed all eligible LPRs who had been placed 
into proceedings prior to April 24, 1996, to apply for relief under 
section 212(c), under the pre-AEDPA standards, and also provided a 180-
day period for aliens with final orders of deportation who were 
adversely affected by the Attorney General's ruling in Soriano to move 
to reopen their proceedings. That 180-day period for motions to reopen 
ended on July 23, 2001.
    The Supreme Court's Decision. On June 25, 2001, the Supreme Court 
issued its decision in INS v. St. Cyr, 533 U.S. 289 (2001), which held 
that ``Sec. 212(c) relief remains available for aliens * * * whose 
convictions were obtained through plea agreements and who, 
notwithstanding those convictions, would have been eligible for 
Sec. 212(c) relief at the time of their plea under the law then in 
effect.'' 533 U.S. at 326. As a matter of statutory construction, based 
on concerns about the retroactive application of IIRIRA to aliens who 
may have negotiated plea agreements in reliance on the continued 
availability of section 212(c) relief, the Court concluded that 
Congress had not made clear in IIRIRA an intent to deny such aliens the 
opportunity to seek such relief once they were placed into proceedings. 
Thus, the Court looked to the law as of the date of the alien's plea 
agreement to determine whether the alien was eligible to apply for 
section 212(c) relief, rather than the date the deportation or removal 
proceedings commenced. Although the Supreme Court addressed only the 
IIRIRA amendment and not the AEDPA limitation on section 212(c) relief, 
the reasoning of St. Cyr applies equally to section 440(d) of AEDPA. 
Indeed, the Supreme Court's above-quoted statement of the holding is 
best read to encompass section 440(d) of AEDPA. See, e.g., Attwood v. 
Ashcroft, 260 F.3d 1, 3 (1st Cir. 2001) (holding that, in light of the 
Supreme Court's decision in St. Cyr, an alien who pleaded guilty prior 
to the date of AEDPA's enactment and was placed into proceedings before 
IIRIRA is eligible to apply for section 212(c) relief).

Why Is the Department Issuing This Proposed Rule?

    In light of the recent Supreme Court decision in St. Cyr, this 
proposed rule would provide procedures for eligible aliens to apply for 
section 212(c) relief before an Immigration Judge or the Board of 
Immigration Appeals. Because this proposed rule would revise the 
Department's interpretation of the availability of section 212(c) 
relief in light of St. Cyr, the Department also will modify the 
provisions of Sec. 3.44 as adopted in January 2001 (the Soriano rule) 
to provide that this rule will govern the adjudication of relief 
applications filed by aliens who fall within the ambit of the St. Cyr 
decision. This proposed rule provides an important opportunity for LPRs 
covered by the Court's decision to apply for relief from deportation or 
removal or otherwise achieve finality in their immigration matters.
    Scope of section 212(c) relief. This proposed rule is intended to 
further eliminate the disparity among the courts of appeals on the 
variety of issues relating to section 212(c) relief. Accordingly, this 
proposed rule would codify the Supreme Court's holding.
    Conforming changes to the existing regulations. Because IIRIRA had 
repealed section 212(c) (which applied to exclusion and deportation 
proceedings) and substituted different forms of relief for purposes of 
removal proceedings commenced on or after April 1, 1997, this proposed 
rule would also make several necessary technical conforming changes in 
Secs. 212.3 and 240.1 of the existing regulations to take account of 
the circumstances in which aliens would be able to apply for section 
212(c) relief with respect to pleas made prior to April 1, 1997, even 
if they were placed into removal proceedings on or after that date.
    The Department notes that former section 242B(e) of the Act, 8 
U.S.C. 1252b (1994), barred certain aliens who were ordered deported in 
absentia from receiving specific forms of discretionary relief for a 
period of 5 years after the barring act. This statutory provision was 
repealed by section 308(b)(6) of IIRIRA. The regulatory provision 
implementing former section 242B(e) is found at 8 CFR 212.3(f)(5). 
Because section 242B(e) of the Act was repealed by the IIRIRA, 
Sec. 212.3(f)(5) will be striken from the regulation.
    Who Is Eligible To Apply for Section 212(c) Relief Pursuant to This 
Proposed Rule?
    An applicant must, at a minimum, meet the following criteria to be 
considered for a waiver under section 212(c):
     The alien is now an LPR (or was an LPR prior to receiving 
a final order of deportation or removal);
     The alien is returning to a lawful, unrelinquished 
domicile of seven consecutive years (or is a former LPR who had 
established a lawful, unrelinquished domicile of seven consecutive 
years prior to a final order of deportation or removal);
     The alien is admissible in the discretion of the Attorney 
General without regard to section 212(a) (other than paragraph (3) 
(terrorism and security grounds) or paragraph (9)(C) (unlawfully 
present after previous immigration violations);
     The alien is deportable or removable on a ground that has 
a

[[Page 52629]]

corresponding ground of exclusion or inadmissibility; and
     The alien would have not have been barred from applying 
for section 212(c) relief with respect to his or her pleas based on the 
law as it existed at time of the pleas, unless the alien has been 
charged and found to be removable based on a crime that is an 
aggravated felony as defined in section 321(a) of IIRIRA, regardless of 
the date the alien's plea was made.
    This proposed rule would not apply to aliens who have departed, and 
are currently outside the United States; aliens who were subject to a 
final order of deportation or removal and who have illegally returned 
to this country; and aliens who are present in the United States 
without having been admitted or paroled.
    Aliens who have been deported or have departed under an order of 
deportation or removal will not be eligible for relief under the 
regulation. This policy is consistent with the Soriano rule. See 66 FR 
6436 (Jan. 22, 2001) (codified at 8 CFR 3.44). As a general rule, 
aliens who have been deported or departed, and for whom the period of 
time for filing a petition for review of their removal orders in the 
court of appeals has closed (or if a petition has been filed, it has 
been denied), may not challenge their prior immigration proceedings. 
See 8 U.S.C. 1231(a)(5); 8 CFR 3.2(d).
    The Department's decision to draw a line between those aliens who 
are in the United States and those aliens who have been deported is 
reasonable and consistent with the plenary authority of the political 
branches of the government in the immigration area. See Fiallo v. Bell, 
430 U.S. 787, 792 (1977); Mathews v. Diaz, 426 U.S. 67, 80-82 (1976). 
Aliens whose final orders of removal or deportation have been executed, 
and for whom the period of time for filing a petition for review of 
their removal orders in the court of appeals has closed (or if a 
petition has been filed, it has been denied), are not situated 
similarly to those aliens who are present in the United States with 
removal orders because the deportation process for the former class of 
aliens has been completed. They are barred from reentering the United 
States for a period of at least five years (except with the permission 
of the Attorney General), and if they do reenter illegally, the Service 
may re-execute their prior order. See 8 U.S.C. 1231(a)(5). Thus, these 
aliens stand in a different position from an alien who is present in 
the United States. Cf. Zadvydas v. Davis, 533 U.S. 678, 693 (2001) 
(``It is well established that certain constitutional protections 
available to persons inside the United States are unavailable to aliens 
outside of our geographic borders''). Moreover, refusing to allow 
aliens who have been deported from the United States to obtain relief 
under the regulation is consistent with Congress's intent as 
demonstrated by the language in former section 212(c), which makes 
relief available to aliens ``lawfully admitted for permanent residence 
who temporarily proceeded abroad voluntarily and not under an order of 
deportation. * * *'' 8 U.S.C. 1182(c) (1994) (emphasis added).
    Furthermore, the distinction is reasonable because it is logically 
related to the orderly administration of this country's immigration 
laws. Allowing aliens who have been deported to seek relief under the 
regulation would create certain verification problems relating to the 
applicant's identity and criminal history. Aliens who were denied 
212(c) relief pursuant to AEPDA, and who were deported years ago, may 
have been convicted of crimes abroad that would disqualify them from 
relief under the regulation, but which would be difficult, if not 
impossible, for the INS to discover and verify. Restricting relief to 
aliens in the United States eliminates this burden. Finally, the 
Department's distinction is reasonable and fair because aliens who have 
been deported had a sufficient opportunity to challenge the denial of 
their applications for 212(c) relief in administrative and judicial 
proceedings.

Can All Convictions Entered Prior to April 1, 1997 Be Waived Under 
This Proposed Rule?

    Under this rule, aliens whose pleas were made before April 24, 
1996, regardless of when they were entered by the court, will be 
eligible to apply for section 212(c) relief without regard to the 
amendments made by AEDPA. Thus, an LPR who has not served an aggregate 
term of at least five years for aggravated felonies may apply for 
section 212(c) relief, if otherwise eligible, with respect to any 
criminal convictions arising from a plea made before April 24, 1996. 
See former INA Sec. 212(c), 8 U.S.C. 1182(c) (1994). Nothing in this 
proposed rule would affect the applicability of the bar to 212(c) 
relief for aliens who have served sentences of five years or more for 
aggravated felonies, regardless of whether the conviction occurred 
before that bar's enactment in 1990. The Supreme Court in St. Cyr 
addressed only the bars enacted by AEDPA and IIRIRA, not the 1990 
amendments. As to the latter, the courts have uniformly held that the 
bar for aggravated felons imprisoned for five years or more applies 
without regard to the date of the conviction. See, e.g., Scheidemann v. 
INS, 83 F.3d 1517, 1523 (3rd Cir. 1996); Samaniego-Meraz v. INS, 53 
F.3d 254, 256 (9th Cir. 1995); Asencio v. INS, 37 F.3d 614, 617 (11th 
Cir. 1994); Campos v. INS, 16 F.3d 118, 122 (6th Cir. 1994); De Osorio 
v. INS, 10 F.3d 1034, 1041 (4th Cir. 1993); Buitrago-Cuesta v. INS, 7 
F.3d 291, 294 (2nd Cir. 1993); Barreiro v. INS, 989 F.2d 62, 64 (1st 
Cir. 1993); Ignacio v. INS, 955 F.2d 295, 299 (5th Cir. 1992).
    Section 440(d) of AEDPA amended section 212(c) of the INA to 
provide that section 212(c) ``shall not apply to an alien who is 
deportable by reason of having committed any criminal offense covered 
by [former] section 241(a)(2)(A)(iii), (B), (C), or (D), or any offense 
covered by [former] section 241(a)(2)(A)(ii) for which both predicate 
offenses are, without regard to the date of their commission, otherwise 
covered by [former] section 241(a)(2)(A)(i).'' AEDPA Sec. 440(d), as 
amended by IIRIRA Sec. 306(d).
    The effect of section 440(d) of AEDPA was to render an alien 
ineligible for relief under section 212(c) if he or she was deportable 
because of convictions for certain criminal offenses, including 
aggravated felonies, controlled substance offenses, certain firearms 
offenses, espionage, and multiple crimes of moral turpitude. This 
narrower version of section 212(c) relief is available to aliens who 
made pleas on or after April 24, 1996, and before April 1, 1997, 
regardless of when the plea was entered by the court. Section 212(c) 
relief is unavailable to aliens who made pleas on or after April 1, 
1997, the effective date of IIRIRA, which eliminated this form of 
relief.

Which Definition of an ``Aggravated Felony'' Should Be Used To 
Determine Eligibility for Section 212(c) Relief?

    The definition of an aggravated felony is contained in section 
101(a)(43) of the Act. 8 U.S.C. 1101(a)(43). Congress has amended this 
definition over time, to add additional crimes to the list of 
aggravated felonies. Thus, some aliens have been convicted of crimes in 
the past that were not defined as aggravated felonies at the time of 
conviction, but are now among the listed crimes that are aggravated 
felonies under current law.
    The definition of aggravated felony, as amended by IIRIRA, applies 
to convictions entered before, on, or after the date of enactment of 
IIRIRA. See INA Sec. 101(a)(43), 8 U.S.C. 1101(a)(43); IIRIRA 
Sec. 321(b). This definition applies to determine whether an alien is 
deportable on account of having

[[Page 52630]]

committed an aggravated felony. This definition also applies to 
determine the eligibility for section 212(c) relief in those cases 
where an alien is deportable as an aggravated felon. See Matter of 
Fortiz, 21 I. & N. Dec. 1199 (BIA 1998). Thus, if an alien pleaded 
guilty to a crime before the enactment of IIRIRA, and his or her crime 
became an aggravated felony after the enactment date of IIRIRA, the 
alien could be charged as an aggravated felon and be ineligible for 
section 212(c) relief. However, aliens who have not been charged and 
found deportable as aggravated felons would not be affected by section 
321 of IIRIRA.

How Is 7 Years Lawful, Unrelinquished Domicile in the United States 
Defined in This Proposed Rule?

    An eligible alien must have lived in the United States as either an 
LPR, or a lawful temporary resident pursuant to INA section 245A, 8 
U.S.C. 1255a, or INA section 210, 8 U.S.C. 1160, for at least seven 
years, as defined in 8 CFR 212.3(f)(2). For purposes of this rule, an 
alien begins accruing time as of the date of entry or admission as 
either a lawful permanent resident or lawful temporary resident and the 
accrual of time ceases when there is a final administrative order in 
the alien's case, as defined in 8 CFR 240.52 and 3.39. Accordingly, if 
an alien is the subject of a final order of removal, the alien who 
files a motion for section 212(c) relief pursuant to this proposed rule 
must have accrued seven years of lawful, unrelinquished domicile as of 
the date of his or her final administrative order. The Board of 
Immigration Appeals has long held that lawful domicile ends at the 
issuance of a final administrative order of deportation or removal. See 
Matter of Cerna, 20 I. & N. Dec. 399 (BIA 1991).

What Are the Procedures for Filing for Section 212(c) Relief?

    The procedure to follow depends on whether the alien is currently 
in proceedings. Aliens who are currently in proceedings before an 
Immigration Judge or the Board of Immigration Appeals must follow 
different procedures than those aliens who have administratively final 
orders.
    1. Aliens not currently in proceedings who are seeking a 212(c) 
waiver prior to temporarily leaving the United States: This rule does 
not change the practice, pursuant to 8 CFR 212.3(a)(1), of allowing an 
alien to apply directly to a district director for section 212(c) 
relief if he or she qualifies for the waiver.
    2. Aliens in pending deportation or removal proceedings: An 
eligible alien who is the subject of a pending deportation or removal 
proceeding before an Immigration Judge should file a section 212(c) 
application pursuant to this rule, or request a reasonable period of 
time to submit an application pursuant to this rule. If the alien has 
previously filed an application, he or she may file a supplement to the 
existing section 212(c) application.
    3. Aliens with an appeal pending before the Board: An eligible 
alien who has an appeal pending before the Board should file with the 
Board a motion for remand to the Immigration Court in order to file a 
section 212(c) application, or a motion to supplement his or her 
existing section 212(c) application on the basis of eligibility for 
such relief pursuant to this rule. If the alien appears to be 
statutorily eligible for relief under this rule, the Board will remand 
the case to the Immigration Court for adjudication, unless the Board 
chooses to exercise its discretionary authority to adjudicate the 
matter on the merits without a remand.
    4. Aliens under a final order of deportation or removal: An alien 
who is the subject of a final order of deportation or removal who is 
eligible to apply for section 212(c) relief pursuant to this rule must 
file a ``special motion to seek 212(c) relief'' with the Immigration 
Court or the Board, whichever last held jurisdiction, as provided in 
Sec. 3.44 as added by this rule. The front page of the motion and any 
envelope containing the motion should include the notation ``special 
motion to seek 212(c) relief.'' Even if the alien has previously filed 
a motion to reopen or a motion to reconsider with the Immigration Court 
or the Board on other grounds, pursuant to 8 CFR 3.23 or 3.2, an 
eligible alien who is the subject of a final order must file a separate 
``special motion to seek 212(c) relief'' under Sec. 3.44 in order to 
receive the benefits of this rule.
    Any proceeding arising from grant of the special motion under 
Sec. 3.44 will be limited to issues concerning the alien's eligibility 
for relief under section 212(c), and may not address the alien's 
deportability, excludability, removability, or any other basis for 
relief from deportation or removal unless the Immigration Judge or the 
Board has reopened the case for other reasons under other applicable 
provisions of law, in which case the issues may be consolidated for 
hearing as appropriate and all appropriate motions fees will apply.
    If the alien previously filed an application for section 212(c) 
relief, he or she must file a copy of that application or a copy of a 
new application and supporting documents with the motion. If the motion 
is granted, an alien who previously paid a filing fee and filed a Form 
I-191 application for section 212(c) relief will not be required to pay 
a new filing fee.
    If the alien has not previously filed an application for section 
212(c) relief, the alien must submit a copy of his or her completed 
application and supporting documents with the motion. If the motion is 
granted, the alien must then file the application with the appropriate 
fee pursuant to 8 CFR 103.7.
    An alien may file only one ``special motion to seek 212(c) relief'' 
for purposes of establishing eligibility under this proposed rule. A 
motion filed pursuant to this proposed rule either before the 
Immigration Court or the Board, whichever last had jurisdiction, must 
specify whether the alien has any pending motions before the 
Immigration Court or the Board. All ``special motions to seek 212(c) 
relief'' filed pursuant to this rule are subject to the restrictions 
specified in this proposed rule. The usual time and number restrictions 
on motions, as articulated in 8 CFR 3.2 and 3.23, shall apply to all 
other motions, but are not applicable to a ``special motion to seek 
212(c) relief'' under this proposed rule.

Are Aliens Who Were Eligible To Seek Section 212(c) Relief Under 
the Department's Soriano Rule Eligible To Seek Section 212(c) 
Relief Under This Rule?

    Eligible aliens who have already filed a motion under the Soriano 
rule (the current version of Sec. 3.44) would not need to file a motion 
under this proposed rule because they would have already been provided 
the opportunity to seek relief. Aliens who did not file a motion under 
the Soriano rule, if they are otherwise eligible under this proposed 
rule, would be able to file under this rule.
    However, this rule does not allow an alien to relitigate the merits 
of a prior motion for section 212(c) relief. An alien who has 
previously been denied section 212(c) relief as a matter of discretion 
will not be able to get a second opportunity to apply for relief under 
this rule.

Is There a Time Limit for Filing a ``Special Motion To Seek 212(c) 
Relief''?

    Yes. An alien must file a ``special motion to seek 212(c) relief'' 
180 days from the effective date of the final rule.

[[Page 52631]]

Is There a Fee for Filing a ``Special Motion To Seek 212(c) 
Relief''?

    There is no fee to file this motion. However, the usual fees apply 
to any other motions filed by the alien.

Is There a Fee To File a Section 212(c) Application?

    Unless the alien has already filed a section 212(c) application and 
only needs to update the application, the alien must pay the fee 
required by 8 CFR 103.7(b)(1) for Form I-191 (currently $170). See 8 
CFR 103.7. An alien currently in deportation or removal proceedings who 
did not previously file a section 212(c) application shall submit the 
Form I-191 to the Immigration Court with the appropriate fee receipt 
attached.
    If the case is pending on appeal before the Board, the alien must 
submit a copy of the section 212(c) application with the motion to 
remand. If the motion to remand to the Immigration Court is granted, 
the alien must then file the application and the appropriate fee 
receipt with the Immigration Court at that time.
    An eligible alien who is the subject of a final administrative 
order of deportation or removal is not required to pay a fee at the 
time of filing the ``special motion to seek 212(c) relief.'' However, 
if the motion is granted, he or she must file the section 212(c) 
application with the appropriate fee receipt.
    Nothing in this proposed rule would change the requirements and 
procedures in 8 CFR 3.31(b), 103.7(b)(1), and 240.11(f) for paying the 
application fee for a section 212(c) application after a motion is 
granted if such an application was not previously filed. Fees must be 
submitted to the local office of the Service in accordance with 8 CFR 
3.31. An applicant who is eligible for section 212(c) relief and is 
unable to pay the filing fee may request a fee waiver in accordance 
with 8 CFR 103.7(c).

Does the Filing of a ``Special Motion To Seek 212(c) Relief'' Stay 
the Execution of a Final Order?

    The mere filing of a motion with the Immigration Court or the Board 
does not stay the execution of the final order of deportation or 
removal. To request a stay of the execution of the final order from the 
Service, the alien must file an Application for Stay of Removal (Form 
I-246), following the procedures set forth in 8 CFR 241.6. To request 
that execution of the final order be stayed by the Immigration Courts 
or the Board, the alien must file a request for a stay with either the 
Court or the Board. See 8 CFR 3.2(f) or 3.23(b)(1)(v).

What Happens If an Alien Fails To Appear for a Hearing Before an 
Immigration Judge on a Section 212(c) Application?

    An alien must appear for all scheduled hearings before an 
Immigration Judge, unless his or her appearance is waived by the 
Immigration Judge. An alien who is in deportation or removal 
proceedings before an Immigration Judge, and who fails to appear for a 
hearing regarding a section 212(c) application, will be subject to the 
applicable statutory and regulatory in absentia procedures (i.e., 
former section 242B of the Act as it existed prior to amendment by 
IIRIRA, 8 U.S.C. 1252b (1994), or section 240(a)(5) of the Act, 8 
U.S.C. 1229a(a)(5), and applicable regulations).

Regulatory Flexibility Act

    The Attorney General, in accordance with the Regulatory Flexibility 
Act, 5 U.S.C. 605(b), has reviewed this regulation and, by approving 
it, certifies that this rule will not have a significant economic 
impact on a substantial number of small entities. This rule would 
provide a more uniform review process governing the eligibility of 
certain aliens to apply for 212(c) relief. This rule does not affect 
small entities as that term is defined in 5 U.S.C. 601(6).

Unfunded Mandates Reform Act of 1995

    This rule will not result in the expenditure by State, local, and 
tribal governments, in the aggregate, or by the private sector, of $100 
million or more in any one year, and it will not significantly or 
uniquely affect small governments. Therefore, no actions were deemed 
necessary under the provisions of the Unfunded Mandates Reform Act of 
1995.

Small Business Regulatory Enforcement Fairness Act of 1996

    This rule is not a major rule as defined by section 251 of the 
Small Business Regulatory Enforcement Act of 1996, 5 U.S.C. 804. This 
rule will not result in an annual effect on the economy of $100 million 
or more; a major increase in costs or prices; or significant adverse 
effects on competition, employment, investment, productivity, 
innovation, or on the ability of United States-based companies to 
compete with foreign-based companies in domestic and export markets.

Executive Order 12866

    This rule is considered by the Department to be a ``significant 
regulatory action'' under Executive Order 12866, section 3(f), 
Regulatory Planning and Review. Accordingly, this rule has been 
submitted to the Office of Management and Budget for review.

Executive Order 13132

    This rule will not have substantial direct effects on the States, 
on the relationship between the national Government and the States, or 
on the distribution of power and responsibilities among the various 
levels of government. Therefore, in accordance with section 6 of 
Executive Order 13132, it is determined that this rule does not have 
sufficient federalism implications to warrant the preparation of a 
federalism summary impact statement.

Executive Order 12988

    This rule meets the applicable standards set forth in sections 3(a) 
and 3(b)(2) of Executive Order 12988, Civil Justice Reform.

Plain Language Instructions

    We try to write clearly. If you can suggest how to improve the 
clarity of these regulations, call or write Charles Adkins-Blanch, 
General Counsel, Executive Office for Immigration Review, 5107 Leesburg 
Pike, Suite 2400, Falls Church, Virginia 22041, telephone (703) 305-
0470.

Paperwork Reduction Act

    This rule will increase the use of Form I-191 but will not result 
in a material change in that form, and the INS is adjusting the total 
burden hours of the form accordingly. Prior to AEDPA and IIRIRA, 
approximately 4,900 applications for this waiver were considered 
annually. From the date of the amendments to section 212(c) by AEDPA 
and IIRIRA, approximately 30,000 LPRs were affected. Some unknown 
number of the affected LPR's will file either new or amended Form I-
191.

List of Subjects

8 CFR Part 3

    Administrative practice and procedure, Aliens, Immigration, Legal 
services, Organization and functions (Government agencies).

8 CFR Part 212

    Administrative practice and procedure, Aliens, Immigration, 
Passports and visas, Reporting and recordkeeping requirements.

8 CFR Part 240

    Administrative practice and procedure, Aliens, Immigration.


[[Page 52632]]


    Accordingly, chapter I of title 8 of the Code of Federal 
Regulations is proposed to be amended as follows:

PART 3--EXECUTIVE OFFICE FOR IMMIGRATION REVIEW

    1. The authority citation for part 3 continues to read as follows:

    Authority: 5 U.S.C. 301; 8 U.S.C. 1101 note, 1103, 1252 note, 
1252b, 1324b, 1362; 28 U.S.C. 509, 510, 1746; sec. 2 Reorg. Plan No. 
2 of 1950; 3 CFR, 1949-1953 Comp., p. 1002; section 203 of Pub. L. 
105-100, 111 Stat. 2196-200; sections 1506 and 1510 of Pub. L. 106-
386, 114 Stat. 1527-29, 1531-32; section 1505 of Pub. L. 106-554, 
114 Stat. 2763A-326 to -328.

    2. Revise Sec. 3.44 and revise to read as follows:


Sec. 3.44  Special motion to seek section 212(c) relief for aliens who 
pleaded guilty or nolo contendere to certain crimes before April 1, 
1997.

    (a) Standard for adjudication. This section applies to certain 
aliens who formerly were lawful permanent residents, who are subject to 
an administratively final order of exclusion, deportation or removal, 
and who are eligible to apply for relief under former section 212(c) of 
the Act and Sec. 212.3 of this chapter with respect to convictions 
obtained by plea agreements reached prior to a verdict at trial prior 
to April 1, 1997. A special motion to seek relief under section 212(c) 
of the Act will be adjudicated under the standards of this section and 
Sec. 212.3 of this chapter.
    (b) General eligibility. Generally, a special motion to seek 
section 212(c) relief must establish that the alien:
    (1) Was a lawful permanent resident and is now subject to a final 
order of deportation or removal;
    (2) Made a plea of guilty or nolo contendere on or before April 1, 
1997, to an offense rendering the alien deportable or removable;
    (3) Had seven consecutive years of lawful unrelinquished domicile 
in the United States prior to the date of the final administrative 
order of deportation or removal; and
    (4) Is otherwise eligible to apply for section 212(c) relief under 
the standards that were in effect at the time the alien's plea was 
made, regardless of when the plea was entered by the court.
    (c) Aggravated felony definition. For purposes of eligibility to 
apply for section 212(c) relief under this section and Sec. 212.3 of 
this chapter, the definition of aggravated felony in section 101(a)(43) 
of the Act is that in effect at the time the special motion or the 
application for section 212(c) relief is adjudicated under this 
section. An alien shall be deemed to be ineligible for section 212(c) 
relief if he or she has been charged and found removable on the basis 
of a crime that is an aggravated felony. However, an alien whose plea 
pre-dates April 24, 1996, is ineligible for section 212(c) relief only 
if he or she has served a term of imprisonment of five years or more 
for a crime that is an aggravated felony.
    (d) Effect of prior denial of section 212(c) relief. A motion under 
this section will be granted with respect to any conviction where an 
alien has previously been denied section 212(c) relief by an 
Immigration Judge or by the Board on discretionary grounds.
    (e) Scope of proceedings. Proceedings shall be reopened under this 
section solely for the purpose of adjudicating the application for 
section 212(c) relief, but if the Immigration Judge or the Board grants 
a motion by the alien to reopen the proceedings on other applicable 
grounds under Secs. 3.2 or 3.23 of this chapter, all issues encompassed 
within the reopened proceedings may be considered together, as 
appropriate.
    (f) Procedure for filing a special motion to seek section 212(c) 
relief. An eligible alien shall file a special motion to seek section 
212(c) relief with the Immigration Court or the Board, whichever last 
held jurisdiction over the case. An eligible alien must submit a copy 
of the Form I-191 application, and supporting documents, with the 
special motion. The motion must contain the notation ``special motion 
to seek 212(c) relief.'' The Service shall have 45 days from the date 
of filing of the special motion to respond. In the event the Service 
does not respond to the motion, the Service retains the right in the 
proceedings to contest any and all issues raised.
    (g) Relationship to motions to reopen or reconsider on other 
grounds. (1) Other pending motions. An alien who has previously filed a 
motion to reopen or reconsider that is still pending before the 
Immigration Court or the Board, other than a motion for section 212(c) 
relief, must file a separate special motion to seek section 212(c) 
relief pursuant to this section. The new motion shall specify any other 
motions currently pending before the Immigration Court or the Board. 
Any motion for section 212(c) relief described in this section pending 
before the Board or the Immigration Courts on the date of publication 
of the interim rule in the Federal Register that would be barred by the 
time or number limitations on motions shall be deemed to be a motion 
filed pursuant to this section, and shall not count against the number 
restrictions for other motions to reopen.
    (2) Limitations for motions. The filing of a special motion under 
this section has no effect on the time and number limitations for 
motions to reopen or reconsider that may be filed on grounds unrelated 
to section 212(c).
    (h) Deadline to file a special motion to seek section 212(c) relief 
under this section. An alien subject to a final administrative order of 
deportation or removal must file a special motion to seek section 
212(c) relief on or before 180 days from date of publication of the 
final rule. An eligible alien may file one special motion to seek 
section 212(c) relief under this section.
    (i) Fees. No filing fee is required at the time the alien files a 
special motion to seek section 212(c) relief under this section. 
However, if the special motion is granted, and the alien has not 
previously filed an application for section 212(c) relief, the alien 
will be required to submit the appropriate fee receipt at the time the 
alien files the Form I-191 with the Immigration Court.
    (j) Remands of appeals. If the Board has jurisdiction and grants 
the motion to apply for section 212(c) relief pursuant to this section, 
it shall remand the case to the Immigration Court solely for 
adjudication of the section 212(c) application unless the Board chooses 
to exercise its discretionary authority to adjudicate the matter on the 
merits without a remand.
    (k) Limitations on eligibility under this section. This section 
does not apply to:
    (1) Aliens who have departed the United States;
    (2) Aliens with a final order of deportation or removal who have 
illegally returned to the United States; or
    (3) Aliens who have not been admitted or paroled.

PART 212--DOCUMENTARY REQUIREMENTS: NONIMMIGRANTS; WAIVERS; 
ADMISSION OF CERTAIN INADMISSIBLE ALIENS; PAROLE

    3. The authority citation for part 212 continues to read as 
follows:

    Authority: 8 U.S.C. 1101, 1102, 1103, 1182, 1184, 1187, 1225, 
1226, 1227; 8 CFR part 2.

    4. Amend Sec. 212.3 by revising paragraph (a)(2), the second to 
last sentence of paragraph (b), paragraph (d), the first sentence of 
paragraph (e)(1), and paragraphs (e)(3), (f)(3), (f)(4), and (g), and 
by removing paragraph (f)(5) to read as follows:

[[Page 52633]]

Sec. 212.3  Application for the exercise of discretion under section 
212(c).

    (a) * * *
    (2) The Immigration Court if the application is made in the course 
of proceedings under section 240 of the Act, or under former sections 
235, 236, or 242 of the Act (as it existed prior to April 1, 1997).
    (b) * * * All material facts or circumstances that the applicant 
knows or believes apply to the grounds of excludability, deportability, 
or inadmissibility must be described in the application. * * *
* * * * *
    (d) Validity. Once an application is approved, that approval is 
valid indefinitely. However, the approval covers only those specific 
grounds of excludability, deportability, or inadmissibility that were 
described in the application. An applicant who failed to describe any 
other grounds of excludability, deportability, or inadmissibility, or 
failed to disclose material facts existing at the time of the approval 
of the application, remains excludable, deportable, or inadmissible 
under the previously unidentified grounds. If the applicant is 
excludable, deportable, or inadmissible based upon any previously 
unidentified grounds a new application must be filed.
    (e) * * *
    (1) An eligible alien may renew or submit an application for the 
exercise of discretion under former section 212(c) of the Act in 
proceedings before an Immigration Judge under section 240 of the Act, 
or under former sections 235, 236, or 242 of the Act (as it existed 
prior to April 1, 1997), and under this chapter. * * *
* * * * *
    (3) An alien otherwise entitled to appeal to the Board of 
Immigration Appeals may appeal the denial by the Immigration Judge of 
this application in accordance with the provisions of Sec. 3.38 of this 
chapter.
    (f) * * *
* * * * *
    (3) The alien is subject to exclusion or inadmissibility from the 
United States under paragraphs (3)(A), (3)(B), (3)(C), or (3)(E) or 
(9)(C) of section 212(a) of the Act (8 U.S.C. 1182);
    (4) The alien has been convicted of an aggravated felony or 
felonies, as defined by section 101(a)(43) of the Act. 8 U.S.C. 
1101(a)(43). With respect to pleas made prior to April 24, 1996, the 
alien is ineligible only if he or she has served a term of imprisonment 
of at least five years for such aggravated felony or felonies.
    (g) Availability of section 212(c) relief for aliens who pleaded 
guilty or nolo contendere to certain crimes. For purposes of this 
chapter, the date of the plea will be considered the date the plea was 
agreed to by the parties.
    (1) Pleas before April 24, 1996. Regardless of whether an alien is 
in exclusion, deportation, or removal proceedings, section 440(d) of 
the Antiterrorism and Effective Death Penalty Act of 1996 shall not 
apply to any pleas made before April 24, 1996.
    (2) Pleas between April 24, 1996 and April 1, 1997. Regardless of 
whether an alien is in exclusion, deportation, or removal proceedings, 
an eligible alien who pleaded guilty or nolo contendere and whose plea 
was made on or after April 24, 1996, and before April 1, 1997, may 
apply for relief under section 212(c) of the Act, as amended by section 
440(d) of the Antiterrorism and Effective Death Penalty Act of 1996.
    (3) Pleas on or after April 1, 1997. Section 212(c) relief is not 
available with respect to pleas made on or after April 1, 1997.

PART 240--PROCEEDINGS TO DETERMINE REMOVABILITY OF ALIENS IN THE 
UNITED STATES

    5. The authority citation for part 240 continues to read as 
follows:

    Authority: 8 U.S.C. 1103; 1182, 1186a, 1224, 1225, 1226, 1227, 
1251, 1252 note, 1252a, 1252b, 1362; secs. 202 and 203, Pub. L. 105-
100 (111 Stat. 2160, 2193); sec. 902, Pub. L. 105-277 (112 Stat. 
2681); 8 CFR part 2.

    6. In Sec. 240.1, amend paragraph (a)(1)(ii) by adding at the end 
``, and former section 212(c) (as it existed prior to April 1, 
1997);''.

    Dated: August 6, 2002.
John Ashcroft,
Attorney General.
[FR Doc. 02-20403 Filed 8-12-02; 8:45 am]
BILLING CODE 4410-30-P