"The Voice of the New Due Process Army" ————– Musings on Events in U.S. Immigration Court, Immigration Law, Sports, Music, Politics, and Other Random Topics by Retired United States Immigration Judge (Arlington, Virginia) and former Chairman of the Board of Immigration Appeals Paul Wickham Schmidt and Dr. Alicia Triche, expert brief writer, practical scholar, emeritus Editor-in-Chief of The Green Card (FBA), and 2022 Federal Bar Association Immigration Section Lawyer of the Year. She is a/k/a “Delta Ondine,” a blues-based alt-rock singer-songwriter, who performs regularly in Memphis, where she hosts her own Blues Brunch series, and will soon be recording her first full, professional album. Stay tuned! 🎶 To see our complete professional bios, just click on the link below.
Paulina Vera and Alberto Benítez joined Alexander Love, a former client of the Immigration Clinic at GW Law, for his naturalization ceremony—“the happy part of immigration cases,” in Vera’s words. (Contributed photo)
Comedies often end with a wedding, and there’s a marriage in this story, but it’s not a comedy. This is an immigration story, and it ends in a naturalization ceremony, with some painful, dramatic scenes along the way. It begins in the Soviet Union with a gay boy called Sasha, and ends in the United States with a gay man named Alexander. They’re the same person, with a lot of credit for that transformation due to students and faculty of the Immigration Clinic at GW Law.
Alexander Love, as he is now known, was born in Ukraine when it was still part of the Soviet Union. His family moved to suburban Moscow, where he grew up and was expected to become highly educated. As a young teen, he realized he is gay, but he came out only to a few trusted friends and, aged 18, began serving in the Soviet Army. After being discharged in 1991, just as the Soviet Union was breaking apart, he went back to school.
“I was artistic and the majority of my subjects were things like physics, chemistry and mathematics,” Love said. “The only classes I passed were English classes.” Following his passion for working with textiles, he quit school and began sewing clothes for himself and for friends who ordered garments from him. He also taught English.
In these years just after the fall of the Berlin Wall, the Soviet Union dissolved and Mikhail Gorbachev, then the Russian president, instituted major reforms. Gay bars and clubs opened (and have since closed) and Western values were embraced. Love befriended Americans living in Moscow and realized how different his life was from theirs. Though Russian society was more relaxed in this period, it could still be very difficult and even dangerous for LGTBQ individuals. In 1998, Love visited the United States for the first time, returning in 1999 and again in 2000, when he first came to Washington, D.C.
“I had been to Spain a few times, so I knew how different it was for gay people outside of Russia,” he said. Gay life at home, even in the more open climate at that time, was risky. “Verbal and physical harassment was always there. You could be stopped on the street or followed by a police car, mostly for the bribes. Sometimes they put some kind of powder in your car.” In taxis, on public transportation, even in gay clubs, he said, people were harassed just because they looked different.
Today, Love prefers not to dwell on the worst abuses he suffered. In 2001, he came to GW Law’s Immigration Clinic for help with his asylum application. Applicants fleeing persecution of LGBTQ people in their home countries need to prove past persecution or that they have a well-founded fear of persecution. Though ill treatment of LGBTQ individuals in Russia is well documented, Love’s application was denied.
Faculty and students in the Immigration Clinic didn’t give up. They assisted him in getting a work permit that allowed him to stay in the United States while they worked on his case. Because he was a clothing designer who had worked with singer Mariah Carey and other persons of note, he was approved for a work permit based on his special skills. But fate quickly intervened.
“Unfortunately,” Love said, “I was diagnosed with HIV, and at that time, you could not apply for a work visa if you had HIV.” (A year later, the law was changed.)
Years passed, and GW Law students came and went with the natural rhythm of matriculation and graduation, but professor Alberto M. Benítez, director of the Immigration Clinic, was a steady presence. So was the man Love said brought stability to his life, his boyfriend (now husband) Michael Love. When same-sex marriage was legalized in 2013, they had been together for eight years. Benítez told Alexander (whose last name then was Sozonov) that if he and Love were married, the clinic could work on obtaining a marriage-based adjustment to his request for permission to remain in America. The partners eagerly wed, but to get their marriage recognized as legitimate in the eyes of the immigration system, both men had to make many court appearances.
A high-stakes version of ‘The Newlywed Game’
Marriage to an American citizen did not automatically mean Love could be granted status as a permanent resident and issued a green card. Sydney Josephson, J.D. ’14, was one of the students who worked on his case. One of her significant contributions to Love’s case was filing a motion to get an approved marriage-based immigrant petition establishing that his union was made in good faith.
Sydney Josephson, J.D. ’14, is flanked by Alexander Love and Michael Love in April 2014 on the day of their interview in support of their marriage-based immigrant petition, which was approved soon after. (Contributed photo)
The process of gaining such recognition can be tricky, according to Josephson, who now practices immigration law with the Fragomen firm in Atlanta. “Sometimes they’ll put people in separate rooms,” she said, “and ask questions like, ‘What color is your fridge?’ One person will say white and the other person will say black. And immigration officials say, ‘This isn’t a good faith marriage. You don’t live together.’”
But Love’s application went smoothly. He and his husband did not go through interviews in separate rooms. They had been together for so long by then that there was little doubt about the nature of their marriage.
Some applicants see less happy results, Josephson said. “A colleague told me about a woman who was asked, ‘What does your husband wear to sleep in?’ She said, ‘Pajamas,’ and the man said, ‘I sleep in gym shorts and a T-shirt.’ And that was one of the reasons they were denied because the officer didn’t think they actually lived together. But I think someone who grew up in another country may think of sweatpants and T-shirt as pajamas.”
Working in immigration law can be extremely rewarding, according to Josephson, because it feels good to help people like Love.
“He’s an amazing person,” she said. “He has a beautiful relationship with Michael, and they’re wonderful people.”
Love was granted status as a permanent resident of the United States in 2016. He enjoys working as a textile librarian for the Washington Design Center.
“It’s a library, but instead of books you have tons of fabrics, trims, leathers and wallpapers,” Love said. “You have to know where everything is at and how to handle them. I’m very happy in this position.”
Clients from around the world
Alumna Paulina Vera, B.A. ’12, J.D. ’15, is a professorial lecturer in law and a supervising attorney of the Immigration Clinic. Since returning to GW seven years ago, she has supervised the students working on Love’s case and others.
“I actually was a student in the Immigration Clinic in my third year at GW Law,” Vera said. “I went to law school because I wanted to be an immigration attorney. I’m the daughter of two immigrants. My mom is from England; my dad, rest in peace, was from Peru. I grew up in Tucson, an hour away from the U.S.-Mexico border. So, immigration has always been a pretty big part of my personal life.”
The Immigration Clinic at GW Law started in 1979 and has helped countless people seek asylum or resist deportation. Clinic members have assisted victims of trafficking as well as DREAMers and youth covered by the Deferred Action on Childhood Arrivals (DACA) program. They have worked with clients from El Salvador, Ghana, Mozambique, Nigeria, Indonesia, China and elsewhere. Recently, they helped a returning client—a woman they successfully represented in her application for asylum in 2018—bring her four children to the United States from Honduras.
Benítez and Vera currently have a cert petition before the U.S. Supreme Court, asking it to review the decision of the 4th U.S. Circuit Court of Appeals in the case of Moisés Cruz Cruz, an undocumented Mexican man living in Virginia. During a routine traffic stop, a police officer asked Cruz his name. In a nervous moment, Cruz combined his own name with his brother’s name. Though he immediately corrected his mistake and wrote his correct name and date of birth on a piece of paper, the officer charged him with false identification, a misdemeanor. On the advice of a lawyer, Cruz entered a guilty plea, and as a result he is now facing deportation. Three of his children are U.S. citizens.
“To me,” Vera said, “this case is very indicative of the overarching immigration consequences that fairly minor criminal convictions can have. Are we going to separate a man from his family of five who has a partner who’s not from Mexico, so could not go back to Mexico with him, over something that stemmed from a traffic stop?”
Benítez said the Immigration Clinic staff unsuccessfully tried, through a different lawyer, to get Cruz’s guilty plea withdrawn. The case hinges on the question of whether Cruz committed a “crime involving moral turpitude,” which justifies deportation in immigration cases. Such crimes are typically defined as depraved acts involving child pornography, rape and other violent crimes such as murder.
“He did plead guilty, and he is in violation of the Virginia state code,” Benítez said. “We’re not disputing that. But is it an immigration violation? We hope that the Supreme Court agrees with us that it is not. State criminal law and federal immigration law are two different things. If the Supreme Court agrees with us, Moisés would be eligible to apply for—not necessarily get—a remedy that we call an immigration law cancellation of removal. That is for long-term residents of the United States who have no status, who establish ties to the United States and establish that they are good citizens.”
‘These folks are not criminals’
Growing up in Buffalo, New York, as the child of Mexican parents, Benítez never discussed immigration with them. His interest in immigration law was piqued when he was in college and learned that applications for asylum were processed with political rather than humanitarian concerns uppermost at play. He went to law school during the Reagan years and has taught at GW since 1996. After practicing immigration law for decades, Benítez said he knows at least one thing for sure.
“There is no border crisis,” he said. “These folks are not criminals. They do not bring disease. They are people trying to save themselves and save their kids. And the way that certain elements in our society demonize them is just plain wrong.”
There is never a shortage of clients at the Immigration Clinic, he said. On the contrary, they sometimes have to make wrenching decisions about which cases to take and which to decline. On average, he estimates that the clinic helps about 50 people per year, including the family members of clients. The clinic’s efforts on behalf of clients, Love among them, can stretch over several years.
“As long as the clients are prepared to continue fighting,” Benítez said, “we are prepared to continue fighting. The student attorneys that I’ve supervised, including Paulina, are the best. Whatever they lack in experience, they make up for in zeal, intelligence, professionalism and empathy.”
Love’s gratitude for the students who helped him remains undimmed.
“The students were the stars of my case,” he said. “I should frame their pictures. I’m thankful to all of them.”
The closing scene in Love’s immigration story takes place at his naturalization ceremony in 2020. Benítez and Vera were present to congratulate him on becoming a U.S. citizen.
*******************
I was privileged to have the GW Law Clinic appear before me in the “Legacy” Arlington Immigration Court during my 13 year tenure there. Professor Alberto Benítez is a long-time friend, neighbor, and fellow dog walker! I’m also proud that Professor Paulina Vera is an alum of the Arlington Internship Program and a “charter member” of the New Due Process Army. Additionally, Attorney Sydney Josephson, JD-‘14, instrumental in this case, now practices with Fragomen, a firm where I was a partner from 1992 until my appointment as BIA Chair in 1995.
Congrats to the GW Clinic on 45 years of spectacular success, leadership in the legal profession, and many lives saved!
One day in 2003, I got a call from an acquaintance — the mother of one of my daughter’s middle school classmates — who happened to be the Vice Dean of Cardozo Law School, part of Yeshiva University in New York City. She knew that I was a practicing immigration lawyer with a major immigration law firm, so she was wondering: would I be interested in teaching a course in Immigration Law at Cardozo?
It turned out that Leon Wildes, founder of the esteemed immigration law firm Wildes & Weinberg, PC, and most famous for his representation of John Lennon, had been teaching Immigration Law at Cardozo for many years. But at the age of 70, he was ready to slow down a bit, and teach only one semester per year instead of two semesters. I was asked if I would be willing to teach the class during the spring semester. Leon would continue to teach the fall semester course, as well as oversee an externship program through which he placed students for a semester with nonprofit legal services organizations representing immigrant clients.
I eagerly said yes, and was given the freedom to design my own syllabus and curriculum. I taught the basic doctrinal course in Immigration Law at Cardozo from 2004 through 2011. Then Leon decided to step down from teaching completely. His son, Michael Wildes, an esteemed immigration attorney in his own right, took over the class, and I segued into running the externship program, which I turned into a full-fledged field clinic with a weekly seminar where we did case rounds and focused on different substantive topics each week — both legal topics such as deportation or different visa types, and practice-oriented issues such as how to interview clients who have suffered severe trauma. I continued to run the Immigration Law Field Clinic at Cardozo Law School until 2015.
Now Leon Wildes has passed on, at the age of 90. He leaves behind an incredible legacy as one of the grand old men of the immigration bar. And that story about John Lennon? It’s worth reading.
Photo from the Wildes & Weinberg, PC website.
Because of Lennon’s affiliation with the Left and his ability to rally young people (during the first presidential election when 18- to 20-year-olds could vote), Richard Nixon considered Lennon to be a threat to his reelection in 1972 and wanted him deported. In defending Lennon against deportation, Leon Wildes — who was so conventional that he purportedly didn’t even know who John Lennon was before he took him on as a client — managed to uncover the then-secret practice (then called the “non-priority program”) within the then-Immigration and Naturalization Service (INS) of exercising prosecutorial discretion not to deport certain otherwise deportable individuals.
Wildes’ advocacy led John Lennon and Yoko Ono to succeed in their fight against deportation and enabled them to obtain permanent residence. Moreover, Wildes’ unmasking of the INS’s ability to exercise prosecutorial discretion paved the way for the Obama Administration to later create a policy allowing young people brought to the United States as children — the so-called “Dreamers” — to remain in the United States under the Deferred Action for Childhood Arrivals (DACA) program.
Read the story of Leon Wildes’ representation of John Lennon in his first-person account, “Not Just Any Immigration Case,” reprinted on the Wildes & Weinberg website from the Benjamin N. Cardozo School of Law Alumni Review.
RIP Leon Wildes. May his memory be a blessing
Careen Shannon Senior Counsel (formerly Partner) Fragomen, Del Rey, Bernsen & Loewy, LLP Executive Producer “Las Abogadas: Attorneys on the Front Lines of the Migrant Crisis.” Photo: Think Immigration
**************************
Thanks, Careen! Lot’s of “good historical stuff” on the Lennon case on the Wildes & Weinberg PC website: https://www.wildeslaw.com/
I drafted the BIA decision in Lennon that was reversed by the late Chief Judge Irving Kaufman and the 2d Circuit. Leon argued the case before the BIA.
Another legend, the late Vinnie Schiano (who, according to my Round Table colleague and immigration historian Hon. “Sir Jeffrey” Chase, claimed to have been a co-inventor of the “Master Calendar”) argued for the “Legacy” INS.At that time, the BIA counted immigration “gurus” Chairman Maury Roberts and Louisa Wilson among its five members.
I ran into Leon at a number of AILA functions over the years. I think he was friendly with Maury Roberts and the late Sam Bernsen, two of my “mentors.”
Leon was a gentleman, scholar, and educator, widely respected by those in Government and private practice.
AILA is pleased to welcome this blog post from long-time AILA member Careen Shannon, Senior Counsel (formerly Partner) at Fragomen, Del Rey, Bernsen & Loewy, LLP, and the Executive Producer of an important new documentary, “Las Abogadas: Attorneys on the Front Lines of the Migrant Crisis.” AILA members in town for the Spring Conference have a chance to see “Las Abogadas” at the Washington, DC International Film Festival on Wednesday, April 26, at 6:00 p.m., with a second show on Friday, April 28, at 8:30 p.m.
When my friend Rebecca Eichler told me that a documentary filmmaker was making a movie about her experience providing legal advice to members of a Central American migrant caravan as it made its way north through Mexico in 2018, I said, “That’s nice.” Later, when film production stalled due to the COVID-19 pandemic, she sent me a link to a trailer and encouraged me to take a look, and I promised to do so. But I was busy managing my remote work for the Fragomen law firm where I was then a partner, and I put all thoughts of the film aside.
Then one day, I watched the trailer, and I was hooked. Here was a story that needed to be told. It wasn’t just about Rebecca, but about tenacious lawyers – mostly women – who were dedicating their lives to defending the rights of asylum seekers, reuniting migrant families torn apart by the Trump administration’s cruel family separation policy, and fighting to uphold the rule of law at a time when the few existing safeguards for migrants seeking refuge from harm were being systematically dismantled.
I reached out to the film’s Director, Victoria Bruce, who I later learned only reluctantly took my call at Rebecca’s urging, since at that point she had run out of steam – and money – and was not sure she had it in her to complete the film. But we had a great conversation, we fed off of each other’s enthusiasm for the subject matter, and by the end of our talk she had invited me to sign on as the film’s Executive Producer.
Two years into the pandemic, I decided to step down as a partner at Fragomen and dedicate myself to ensuring that this important film got made. Fast forward to today, and Las Abogadas: Attorneys on the Front Lines of the Migrant Crisis is making the rounds of film festivals, winning awards, and garnering critical acclaim. Las Abogadas (which means “the women lawyers” in Spanish) follows a group of women immigration attorneys over a multi-year odyssey as the U.S. government under Trump upends every protection for those fleeing from persecution, violence and war. The film’s narrative continues into the first two years of the Biden administration, where great hope gives way to a despair my fellow AILA members undoubtedly share, that nothing fundamental had changed in U.S. immigration policy.
. . . .
*********************
Read the complete article at the link.
“Nothing fundamentally has changed.” Rather than listening to, recruiting, partnering with, and following the advice of those on the “front lines” of defending individual rights, freedoms, and upholding American democracy, the Biden Administration disastrously turned immigration, human rights, and racial justice policies over to a bunch of “wonks” disconnected from the preventable human tragedies and mocking of the rule of law represented by Trump’s xenophobic, White Nationalist agenda.
Today, President Biden announced his candidacy for re-election in 2024. Part of his slogan is “protecting personal freedoms” from the GOP right-wing authoritarian, police state — bedrooms, bathrooms, classrooms, voting booths, more guns, MAGA-maniacs plan to invade and regulate every aspect of your life. But Biden’s miserable performance on immigrants’ rights and his Administration’s tone-deaf “dissing” of those like the heroes of “Las Abogadas,” suggests he will need more than a slogan to energize a critical, too often ignored,“core component” of the Dem base.
He could start by watching “Las Abogadas” along with VP Harris (who “took on” the “immigration portfolio,” and has been MIA since), his politicos, and his campaign staff and heeding the message. Social justice advocates are understandably skeptical about Biden’s promises. He needs actions that advance due process, the rule of law, and humane, robust, orderly processing of refugees and asylum seekers!
As the Trump debacle demonstrated, when immigrants’ rights disappear, all other individual and personal rights in America are in the far-right’s sights! It doesn’t take much imagination (except, perhaps, for some so-called “centrist” Dems) to see how the onslaught of anti-immigrant myths, rhetoric, and legislation by the GOP right has quickly shifted to hate bills targeting gays, transgender, women, Black History, teachers, voters, election officials, rational gun control, heck, even doctors, nurses, and established medical science!
Careen Shannon Senior Counsel (formerly Partner) Fragomen, Del Rey, Bernsen & Loewy, LLP Executive Producer “Las Abogadas: Attorneys on the Front Lines of the Migrant Crisis.” Photo: Think Immigration
Many congrats to Careen Shannon and everyone else involved in this tremendous project!
A finding of ‘probation before judgment’ should never lead to deportation | COMMENTARY
By JOHN F. GOSSART JR.
FOR THE BALTIMORE SUN |
FEB 05, 2021 AT 5:31 AM
“May God forgive you, because I cannot.”
These words were written to me in a letter while I was a United States immigration judge at the Baltimore Immigration Court, where I presided for 31 years. The letter was written by the wife of a man I had ordered deported. In so doing, I had permanently separated a father and husband from his wife and children. These words will stay with me for the rest of my life.
Michelle Jones’ husband, Daryl, was charged with a minor offense in Maryland. Like many first-time offenders and individuals charged with minor violations, he was given probation before judgment (PBJ). This meant that Daryl, a lawful permanent resident of the United States was not convicted under Maryland state law. For United States citizens, a Maryland PBJ poses no further consequences unless they violate the terms of their probation. But for non-citizens like Daryl, the legal consequences can be far more dire.
Although a PBJ is not considered a conviction under state law, it is considered a conviction under federal law and therefore triggers immigration consequences, such as detention and deportation. I have witnessed countless non-citizens be ordered deported as a result of a PBJ and the devastation to their families that follows. I myself have ordered the deportation of hundreds of Maryland residents like Daryl because of a PBJ. It didn’t matter that these individuals had been deemed worthy of a second chance and not convicted under Maryland law. Their PBJs condemned them to the gravest punishment — deportation under federal immigration law — leaving me with no judicial discretion. My hands were tied by the law.
The Maryland General Assembly has the opportunity, and the responsibility, to correct this unjust system by amending the PBJ statute. That is why I am asking the Maryland General Assembly to pass legislation (House Bill 354/Senate Bill 527) that would make probation before judgment accessible to all Maryland residents, regardless of citizenship status. The amendment would merely change the process by which a PBJ is entered; the impact of a PBJ would remain unchanged.
This bill ensures that the consequences of PBJs are the same for citizens and non-citizens alike, narrowing the disparities in our criminal justice and immigration systems, which disproportionately affect people of color. And for someone like Daryl, it would have been the difference between deportation and staying in the country to be with his family and watch his kids grow up.
. . . .
******************
Read the full op-ed at the link.
All of us who have served on the immigration bench have had cases like Daryl’s where the result is unjust and there is no sensible explanation for what we were forced to do.
The time for rationalizing and humanizing our immigration laws is here. As my long-time friend and colleague (we were “present at the beginning” of EOIR) John says, we must seize and act on every opportunity to make due process and equal justice under law a reality for all persons in America!
Thanks, my friend and colleague!
Historical trivia: I made one of my rare Immigration Court appearances before Judge Gossart in a pro bono case when I was at Frogomen DC. It was an asylum case, and we won at the preheating conference! I do remember that Judge Gossart was pretty peeved at me because I refused to concede removability, asserting my client’s right to be in and remain in the U.S. as a refugee/asylee. He “ripped me” on that issue, but we won on everything else. The INS Attorney didn’t contest it, as I remember.
One of my other pro bono appearances was before my friend and Round Table colleague Judge Joan Churchill in Arlington. Won that one too — recollect it was a withholding of removal case, also resolved through pretrial agreement with the INS Attorney at the suggestion of Judge Churchill.
Didn’t get to show off my “litigation skills” in either case. Probably just as well. A “W” is a “W,” and a life saved is a life saved!
Sam Bernsen 1919 – 2020 Immigration Official, Law Partner, Educator, Mentor
A LEGAL GIANT PASSES: SAM BERNSEN (1919 – 2020) — Public Servant, Law Partner, Teacher, Scholar, Mentor, Humanitarian, Advocate For Due Process — He Helped Change The Face Of America For The Better!
By Paul Wickham Schmidt
Courtside Exclusive
July 30, 2020.I’d seen his name on briefs and old court cases (See, e.g., Vaccaro v. Bernsen, 267 F.2d 265 (5th Cir. 1959)). But, the first time I met Sam Bernsen was in January 1976, when I reported for work at the “Legacy” Immigration & Naturalization (“INS”) Office of General Counsel at the Chester Arthur Building in a rather run-down neighborhood within walking distance of the U.S. Capitol.
That building was perhaps a suitably shabby tribute to the “stepchild” status of INS within the hierarchy of the U.S. Department of Justice (“DOJ”). The carpet was shopworn, elevators slow, and the corridors dim as a result of the Ford Administration’s “Whip Inflation Now” (“WIN”) austerity program that had removed every other fluorescent lightbulb from the fixtures.
The office was a far cry from today’s Department of Homeland Security (“DHS”) massive legal operations: Just Sam, then the General Counsel, his Deputy, Ralph Farb, and two other “General Attorneys,” Stuart Shelby and Janice Podolny. Stu, Janice, and I actually shared an office with three desks (but only two telephones).
And it was always “Sam” not “Samuel.” Sam was his legal name, and he was very proud of it. Perhaps he connected it with “Uncle Sam.”
In any event, one of his “pet peeves” was when unknowing folks addressed him as “Samuel” in memos or on legal documents. I remember him vigorously “blacking out” the offending “uel” with his pen. His other pet peeve was when the server put parmesan cheese on his daily lunchtime bowl of minestrone soup at theGAO cafeteria!
Remarkably, I had gotten the job without personal interview by Sam. I attributed this to recommendations by Sam’s good friend and my first mentor Maury Roberts, then Chairman of the Board of Immigration Appeals (“BIA”), and another friend of Sam’s, Leon Ullman, then Deputy Assistant Attorney General at the DOJ Office of Legal Counsel.
Working for Sam was like having a personal daily seminar in American immigration law from a really great professor. Sam had done it all. And, he took the time to explain everything to those working with him.
During his teens, Sam started at the very bottom of the Civil Service system as an “assistant messenger” with the U.S. Attorney in New York and then the INS on Ellis Island. According to Sam, he never he never made “full messenger.” But, he did rise to the top of the ranks of Civil Servants as General Counsel.
In between, Sam was an immigration inspector, chair of a board of special inquiry (the predecessor to today’s Immigration Courts), chief adjudicator, Assistant Commissioner for Adjudications, and District Director in New Orleans as well as serving in the Army during World War II and later as a Major in the Air Force Reserve. He knew the policies and the stories behind every regulation and operating instruction, as well as the history of all the immigration statutes from the 1924 Act on.
America’s immigrant heritage that Sam observed at Ellis Island and in his childhood neighborhood in Brooklyn greatly influenced his life. The 1975 movie “Hester Street,” about Jewish immigrants in New York in the early 20th century, was one Sam’s and his wife Betty’s favorites.
Sam loved providing clear, concise, practical, understandable legal advice to the INS Commissioner (then General Leonard Chapman, Jr., former Commandant of the Marine Corps) andvarious “operating divisions” of the INS in what was then known as the Central Office (“CO”). It likely came from his experience as a field officer who had to make decisions based on what came out of the CO. Gen. Chapman had Sam on “constant call” for legal advice.
Although Sam’s background was “old school up through the ranks,” he had a “new school” attitude and vision about the future of immigration law. Like his friend Maury Roberts at the BIA, Sam pioneered the use of the “Attorney General’s Honors Program” (of which I was a product) to bring a “new generation” of younger attorneys into the INS. That was later expanded by his immediate successors as General Counsel, David Crosland (Carter Administration) and Maurice C. “Mike” Inman, Jr. (Reagan Administration).
Sam had progressive views on using court decisions and common sense to make the immigration laws function better and easier to administer for everyone, at least in some small ways. One of the things we worked on was the “INS Efficiency Act,” originally introduced by Senator Ted Kennedy (D-MA) in 1979 and eventually incorporated into the “Immigration & Nationality Act Amendments of 1981,” enacted into law by P.L. 97-116 (Dec. 29, 1981).
This made a number of “common sense” fixes that Sam had noted over the years both by studying appellate court decisions and from answering recurring questions from INS operating divisions and DOJ litigation divisions handling our cases. It harkens back to a bygone time when public service in immigration was about “doing the right thing” and “promoting the common good” rather than advancing restrictionist ideological agendas.
My all-time favorite project with Sam was the July 1976 legal opinion approving and recommending the use of “prosecutorial discretion” by INS enforcement officials. This provided a sound legal basis for the INS’s “deferred action” program. Later, it formed part of the basis for the Deferred Action for Childhood Arrivals (“DACA”) program that has so greatly benefitted both America and deserving young people while, at least for a short time, helping to bring some badly needed rationality, humanity, uniformity, and proper prioritization of resources to an all too often scattershot and out of control DHS enforcement program.
Although written by me, that opinion reflects the “essence of Sam” — enforcement with rationality, humanity, prudence, fairness, attention to the views of courts, and standards to prevent arbitrariness. A full copy of that 1976 memorandum is linked below. My initials are at the bottom of the last page.
In light of all the nonsense making the rounds today, our conclusion is worth keeping in mind:
The power of various officers of the Executive Branch to exercise prosecutorial discretion is inherent and does not depend on express statutory authorization. . . . [T]he Service’s attempts to set forth some standards for the exercise of prosecutorial discretion are particularly appropriate.
My time in the General Counsel’s Office with Sam was all too short. He retired in 1977. At the time, he had 38 years of Federal service, but was only 57-years-old, with several more distinguished careers in front of him.
Sam went on to become one of the “founding partners” and managing partner of the Washington, D.C. Office of the powerhouse national immigration firm Fragomen, Del Rey, & Bernsen, now the international law firm known as “Fragomen.” He also became a noted educator in the field, lecturing and writing for the American Immigration Lawyers Association (“AILA”) and serving as an Adjunct Professor of Law at Catholic University and American University. I hired some of his former students in various capacities in some of my “future incarnations.”
Along the way, Sam tried to “recruit” me for his firm. But, I wasn’t quite ready to make the jump. Later, however, we did “reunite” for a short “transition period” when I succeeded him as the managing partner of Fragomen DC in 1993.
What I remember most about Sam from our stint in private practice was how loyal his clients were and how much they trusted him with their fate and future. One of his greatest joys was working with students, young professionals, and student advisors on issues relating to F-1, J-1, and H-1 non-immigrant visas. We also did some projects relating to the interpretation of statutes and regulations that we had a role in drafting and enacting back in the General Counsel days. His clients and the Government officials he dealt with regarded Sam with reverence, as both the “ultimate authority” and the “total straight shooter,” a somewhat unusual combination for a lawyer in private practice.
Sam and I kept in touch for many years at AILA Conferences and other educational events, even after I rejoined Government in 1995 as Chair of the BIA. Sam was an avid tennis player, and from time to time I would run into folks who had met him in courts of both the tennis and legal variety. Indeed, Sam kindly served as the “featured speaker,” at my investiture as an Immigration Judge at the Arlington Immigration Court in June 2003.
Along with folks like Maury Roberts, Ralph Farb, Charlie Gordon, Irv Applemen, and Louisa Wilson, Sam was one of my mentors and one of the all-time greats of American law. He represented a constructive, scholarly, and humane view of public service that has all but disappeared from the scene. Yet, he also saw into the future and was able to “reinvent himself” in new and dynamic ways after leaving public service. I had to do some of the sameand always looked to Sam as a role model.
Sam’s decisions, opinions, scholarship, and humanity helped shape generations of American immigration law. His work both in and out of Government changed the lives of thousands of immigrants for the better and helped build our nation into the diverse country it is today. His many students and those he mentored over the years, like me, continued his legacy and formed the forerunner of the “New Due Process Army.”
America and the world are richer and better because of Sam’s life and contributions. Sam knew the law, perhaps better than any other, and he used it to further humane goals whenever possible. Would that we had more role models like Sam in positions of responsibility and authority today! Sam, thanks for everything, and may you rest in peace after a “life very well lived!”
Here is a link to our 1976 legal opinion on prosecutorial discretion:
