I.
KEYNOTE: AILA NORTHWEST REGIONAL IMMIGRATION LAW CONFERENCE February 14, 2019
Seattle, Washington
PRACTICING IN PERILOUS TIMES
INTRODUCTION: Practicing in Perilous Times a.What does it mean to be PRACTICING IN
PERILOUS TIMES? Is this time really so
different? b.ALWAYS:
i. You have ALWAYS worked with the most vulnerable clients
ii.You have ALWAYS taken in stories of trauma, persecution and grief in the normal course of your work
iii.You have ALWAYS had an uphill battle obtaining the relief to which your clients are entitled, because you operate in a system that is broken and often oblivious to their suffering.
c.YOU PERSISTED:
i. But you PERSISTED on behalf of your
clients because you had the skills and the courage to fight those battles on a relatively consistent, if not level, playing field.
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ii.You PERSISTED because you had for inspiration the resilience and courage and dreams of your immigrant clients
iii.You PERSISTED because, maybe not as often as you’d like, but at least occasionally, you had the satisfaction of helping someone achieve a second chance in life – a chance to start over in the country they chose as home, to work and contribute in their chosen manner, to be with their families, to enjoy a life free of persecution or torture or crushing poverty.
d.NOW
i. NOW the playing field tilts more
drastically every day and the battles are so bloody and so mean-spirited and the results so frequently demoralizing and unfair and lacking in due process, that it has become really difficult to carry on, to keep on persisting.
ii.NOW you’re not only experiencing stories of past trauma, but you are witnessing, in real time, the traumatization of your clients as this administration literally terrorizes them with its rhetoric and actions.
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iii.NOW you see decades of hard-won development of protections for your clients swept away in a single day and with a single pen stroke.
iv.In my more than 30 years both practicing as an immigration attorney and sitting as an immigration judge, I don’t believe there has been a more difficult or perilous time to practice in this area.
1.What you are all doing at this time in history is really, really difficult
2.It takes an inordinate amount of dedication, courage and vision.
3.I am in awe of each and every one of you.
II. IMMIGRATION COURT UPDATE a.I’ve been asked to give today an
IMMIGRATION COURT UPDATE.
i. That’s a bit of a difficult task, since
you are the experts on what you’re seeing every day in court, and since I have been off the bench and somewhat “out of the inside loop” for two years, and much has occurred since then. Despite that, I’m going to venture an opinion, and that is that the Immigration Court system itself is also
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in serious peril, as is its ability to provide due process of law to those who appear before it.
ii.I want to focus on a few issues that I think are extremely important to protecting due process in our court system.
b.ADMINISTRATIVE ISSUES resulting in a Crushing caseload: The Immigration Court has been functioning under a crushing caseload and with entirely inadequate resources for as long as I worked there.
i. That caseload is now growing exponentially for a variety of reasons (the last statistic I heard was that, on average, individual Immigration Judges have a pending caseload of over 2500 cases). What are some of the reasons for this exponential growth?:
1.Priorities: This administration has absolutely refused to set any kind of meaningful priorities for prosecution of cases. The policy is to prosecute every issue in every possible case to the max. There is no recognition that limitations on resources require prosecutorial discretion.
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2.Erosion of case management tools:
a.The current management of EOIR has eroded the case management tools that in the past allowed judges to juggle a massive caseload and prioritize the cases that were ripe for adjudication. First, administrative closure was taken away by AG Sessions, with a suggestion that such situations could be dealt with by continuances. Then, once that was in place, EOIR openly discouraged continuances, requiring judges to issue a long- form written decision justifying each granted continuance. No such decision is required to deny a continuance. In addition to eliminating essential tools for managing a massive caseload, incentivizing a particular outcome in decision-making undermines the independence of the court and due process
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and has no place in a court
system!
3.Aftermath of Gov’t Shut Down:
a. My contacts are with the SF
Immigration Court, not Seattle, but I think some generalizations can be made: First, there was ZERO GUIDANCE from EOIR management on how to deal with the specifics of the shut-down. Thus, each court administrator decided how to deal with, for instance, filings during the shut down, and the resetting of cases.
b.In San Francisco, all mail was opened and date stamped, then set for a 10 day call up to begin the day the government reopened. They received 10,000 filings during the 5 week shutdown. None of them could be entered into the system. They all came up for call up on Feb 7, 2019.
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Thus, the SF court, which is one of the most efficient and well-run courts, is overwhelmed still by the remnants of the shut down.
c. In addition, when the SF Court Administrator asked EOIR for a 3 day “recovery period” after the shutdown, the request was denied and they were told that all courtrooms had to be in full swing as of the morning of the first day the government reopened. ACCs did not have their files, court files had not been pulled for Master Calendar and Individual Calendar hearings. At that point 10,000 filings, including those filed before the two week filing deadline for cases scheduled that morning, were in a pile waiting to be entered into the court
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system and were
inaccessible to the judges. d.The only support offered
from EOIR was unlimited overtime for staff, so some staff has now been consistently working 20 hours a week overtime to try to catch up on the aftermath of the shutdown.
e.As an example of the delays engendered by the shutdown, in San Francisco 67 full Master Calendars had to be cancelled. As new cases pour in and add to the backlog, all these cases have to be reset to new Master Calendars, not to mention hundreds of individual cases which must now be reset.
4.Severe shortage in resources: As always, the Immigration Court is operating under a severe shortage of resources. As an example, in San Francisco, by this summer they will have a full complement of 27
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Judges and all courtrooms will be full, but the court is already down 30 Legal Assistants from what they should have and all Legal Assistants are carrying 2 judges’ caseloads, a nearly impossible task even in a short-term emergency situation. Because Legal Assistant hiring falls far behind even IJ hiring, by summer all the Legal Assistants will have to carry 3 judges’ caseloads.
c.LEGAL AND INDEPENDENCE ISSUES
i. I talked about incentivizing denying
continuances. But there are even more direct ways in which this administration has undermined the independence of the Immigration Court. When the Attorney General of the United States goes to a conference of Immigration Judges and specifically tells judges that entire categories of asylum cases should “generally” be denied (as AG Sessions did in the summer of 2018), this is a direct and blatant attack on the decisional independence of the Immigration Judges.
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ii.Matter of A-B- was only one in a series of decisions in which the current Department of Justice is inappropriately using the AG Certification Process in an attempt to roll back decades of painstaking development of the law, developments which had finally brought us into closer compliance with our international obligations to protect true refugees. This tactic has gone hand in hand with vicious attacks on immigrants in the press and disregard of their true motives for coming to the United States.
iii.Add to all of this the jurisdictional issues raised by the Supreme Court in Pereira v. Sessions and the Immigration Court system is in severe peril. It seems to me extremely clear that the legal conclusion in that case compels a finding that the vast majority of Notices to Appear filed with the court during the entire time I have been involved in immigration law are invalid and incapable of conferring jurisdiction on the Immigration Court. As I’m sure you know, a panel of the 9th Circuit
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recently held otherwise, but with very shaky reasoning. If eventually all these NTA’s are declared invalid, I have grave concerns for the impact that will have on the Immigration Court system, and even on tens of thousands of immigrants who have been granted relief by Immigration Courts over the last 40 years.
iv.The final perilous factor I want to talk about today is the pressure on judges to complete an overwhelming number of cases in a very short period of time, probably the most dangerous threat to due process of all.
1.Immigration Judges have, for the first time, been mandated to complete 700 cases per year. In the past we had “aspirational goals” to complete certain cases by a certain time, and that in and of itself, created a lot of pressure and fear among judges.
2.But now, not only have the case completion goals become mandatory, they have been tied to the Immigration Judge’s Performance Evaluations. If you
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look at the ABA’s guidelines for evaluation of judges, you will see that completing a particular number of cases is absolutely inappropriate as a factor to evaluate judges. Judges are evaluated by their peers and party/ stakeholders on criteria such as legal reasoning ability; knowledge of the law; knowledge of rules of procedure and evidence; keeping up on current developments; Integrity and Impartiality; communication skills; professionalism and temperament; administrative capacity (including managing a docket efficiently and effectively) – while this includes promptness in deciding cases, the commentary makes clear that these are aspirational goals, that some factors affecting promptness of decisions may be outside the judges’ control and that the purpose of such an evaluation is primarily for the individual improvement of each judge and
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should never be tied to
disciplinary action.
3.Now we have a situation in the Immigration Court in which the judges’ continued employment depends on their ability to keep up with an artificial and unrealistic case completion mandate, which requires the completion of approximately three full hearings a day, leaving complex asylum and cancellation hearings lucky to be scheduled for 90 minutes, where such hearings used to be scheduled for a full morning or afternoon, and might take even more than one such session.
4.This is something that requires vigilance by all of us. Knowing that the judges are under an incredible amount of pressure, and even sympathizing with that situation (please do!), does not relieve us of zealously representing our clients. What does that mean in this milieu? It means being super prepared. It means being super efficient in the presentation of your cases. It
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means trying to work out stipulations with ICE counsel as to issues, admissibility of evidence, the need for cross examination (anything you can think of to make the hearing go faster for the judge), it means briefing every or almost every case and making sure all arguments are addressed in writing in case time is not given for closing arguments or opening statements. And then, after you have done the most thorough, efficient, and complete job you can at presenting your case, if the time given is not sufficient and the judge is cutting off the presentation of the case, it means standing up on the record and using the words “denial of due process”.
III. CONCLUSION:
a.What does all this mean as we struggle to
deal with the peril in which we find ourselves?
i. As a community, we must continue to advocate for a more independent
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court, one which exists outside of any prosecutorial agency such as the DOJ.
1.For years we had mostly small incursions into decisional independence, most often when EOIR management made what they believed to be an “administrative” decision which inadvertently encroached on decisional independence
2.But, as judges, we saw the potential and feared that more intentional and direct incursions could be made under the current system. Therefore, at peril to our own jobs, we chose to advocate for an independent court under Article 1 of the United States Constitution. Since then, the Federal Bar Association, AILA and others have joined us in this call.
3.We are now seeing the types of direct and intentional attacks on the independence of the Immigration Judges that we mostly only feared before. Therefore, we must redouble our efforts to attain
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independent status for the
Immigration Court.
ii.As individuals, as I said in the
beginning, we are facing truly perilous times, and we can’t underestimate the impact that has on our health, our ability to stay in the work for the long term, and our competence as attorneys.
1.It bears saying that, in such perilous times, it is terribly easy to feel that there is no time to rest, no time to take a break, spend time with family, engage in self- care such as meditation or exercise or dancing or surfing or whatever floats your boat and helps you renew your stamina. It’s so easy to feel that our clients are suffering so badly that we ourselves have no right or ability to rest.
2.A young lawyer said to me recently, “We start out in this work feeling like warriors; but we wind up barely hanging on.” That got me thinking what it would mean to approach our work with the heart
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of a warrior. The characteristics of warriors are:
a.Persistence: not accepting what seems to be inevitable. We didn’t accept it when years of “settled law” seemed to preclude effective use of Particular Social Group in asylum cases, and we must not accept either when the AG “grabs” cases in order to undermine decades of patient and attentive legal development, as he did in Matter of A-B-. Likewise, we must not accept having our cases rushed beyond all semblance of due process.
b.Preparation: Warriors prepare themselves for battle – as we are doing now, and do regularly, by educating ourselves, learning from each other, strategizing and skills training. As warriors, we also prepare our cases as well as ourselves, and do so zealously and to the best of our ability.
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c.Dedication: As warriors, we must consistently ask ourselves – does this work bring me joy? If not, you will not be able to fully dedicate yourself to it for the long term. Because we believe in the work we are doing and the people we are representing, we WANT to give of ourselves 110%. But what does that mean? As part of her preparation for battle, a warrior prepares herself by taking care of body and soul.
I propose to you that in these perilous times, self-care becomes even more essential than it ordinarily is. It HAS to figure in to the 110% that you are giving! Our brains and bodies break down if we remain consistently in fight or flight mode and that effects not only our own happiness and health, but our ability to represent our clients competently and intelligently over a long period of time. Don’t put off this
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aspect of your role as a warrior for your clients. Please don’t wait, as I did, until you are too fundamentally exhausted to implement a self-care plan.
d.Do it now, do it for yourselves, do it for your family, do it for your current and future clients.
3.Thank you
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Thank you, Carol. Proud to be your colleague in “Our Gang!”
PWS
02-15-19