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Here’s some historical perspective. When the Refugee Act of 1980 was enacted, the INS took the position that the standard of proof for asylum was the same as the “traditional” standard for the pre-existing relief of withholding of deportation. That was a “clear probability,” of persecution, which means “more likely than not.”
Because this was a high standard that had been “over-rigorously applied” to deny almost all withholding cases (refugees from communism — Other Than Chinese — were about the only folks who had any chance of being granted withholding, and that was rare) the asylum grant rate remained very low for the first six years following enactment of the Refugee Act. In 1987, that grant rate was only approximately 11%.
In 1987, the Supreme Court decided INS v. Cardoza-Fonseca, 480 U.S. 421 (1987). (As the Acting General Counsel/Deputy General Counsel of INS, I had helped the Solicitor General prepare and articulate the Government’s position. My future Immigration Court friend and colleague, Judge Dana Leigh Marks, then known as Dana Marks Keener, argued for Ms. Cardoza-Fonseca. I sat at counsel’s table with the “SG’s Team” during the oral argument before the Court. Shortly thereafter, I left INS to go into private practice at Jones Day.)
To the surprise of many of us, the Supremes soundly rejected the INS position and ruled in favor of Ms. Cardoza-Fonseca. The Court said that a “well-founded fear” of persecution was intended to be a much more generous standard, significantly less than a probability and including a “10% chance” of persecution.
Thereafter, the BIA issued a precedent implementing the “well founded fear” standard as “significantly less than a probability” — an “objectively reasonable” fear of persecution — in Matter of Mogharrabi, 19 I&N Dec. 437 (BIA 1987). Mogharrabi also stood out as one of the very few BIA precedents up to that time actually granting, rather than denying asylum on appeal. (When I returned to Government service in 1995 as Chairman of the BIA, I was a “true believer” in making the as yet “unfulfilled promise of Cardoza and Mogharrabi” a reality! That’s still at the top of my “Due Process Forever Wish List!”)
In the immediate aftermath, while “parroting” the Cardoza and Mogharrabi generous standards, most Immigration Judges and BIA panels appeared to actually continue to apply the more restrictive “probability” or “more likely than not” standard. But, over time, the Circuit Courts of Appeals and sometimes even Board Members (most often in dissent) began “calling out” EOIR Judges for what appeared to be an intentional misapplication of the asylum standard.
A regulation change to provide a “rebuttable presumption of future persecution” arising out of past persecution also helped. That is, once the Article III Courts forced EOIR judges to actually apply, rather than ignore or disingenuously “work around,” the regulatory presumption. See generally, Matter of Chen, 20 I&N Dec. 16 (BIA 1989) (particularly the concurring opinion by Judge Michael J. Heilman) for the “Bush I Era” historical impetus for the past persecution regulations. Ironically, the BIA sometimes had trouble “following up” on the generous teachings of their own Chen precedent.
Additionally, Judge Marks and other trained asylum experts from outside the Government who joined the Immigration Court prior to 2001 began actually applying the correct standard to grant asylum. (By stark contrast, Sessions and Barr “stacked and packed” the BIA with some of the most virulent anti-asylum judges in America while appointing far too many individuals with no immigration or asylum expertise whatsoever to be Immigration Judges at the trial level. The idea was to “build the deportation railroad” 🚂 with the BIA and Immigration Court as “mere whistle stops,” at best.)
Consequently, over time, between 1987 and 2013, there was a slow but steady increase in asylum grant rates as Courts and some Immigration Judges and BIA Members pushed EOIR to finally “live up” to the more generous Cardoza/Mogharrabi standard. A number of those who helped this push for justice for asylum seekers are now members of our “Round Table of Former Immigration Judges!”🛡⚔️
The world certainly was a dangerous place for refugees in the years leading up to FY 2012, when asylum grants actually reached their “high water mark” of well over 50%. But, it has gotten even more dangerous over the past decade.
That, until recently, asylum grant rates had steadily declined since FY 2012 while conditions for refugees continued to worsen shows that the EOIR system is largely about politically driven enforcement manipulation rather than a test of reality or a fair, efficient, competent, and legally sound approach to asylum law.
The modest but welcome rise in asylum approval rates under Biden happened notwithstanding a BIA that continues to churn out unduly and intentionally restrictive precedents and to botch basic asylum decisions on a regular basis! It also occurred under an Attorney General who has largely “looked the other way” and exhibited indifference as the BIA (composed mostly of “holdover” Trump-era appointees or “survivors” of the Trump regime) continues to abuse asylum seekers.
Lawyers and applicants who have kept fighting for their rights in a system designed to railroad and demoralize them deserve much credit for the improved results and for constantly battling to expose the “Garland BIA’s” gross deficiencies to the Article III Circuit Courts. That’s what the “New Due Process Army” is all about!
Just think what the asylum grant rate might look like with a better BIA of independent expert judges who consistently provided positive precedents and guidance on asylum law and consistently enforced them against those Immigration Judges who have improperly and unethically created “Asylum Free Zones” in some jurisdictions!
Think of how many lives could be saved with better judges at the trial, and particularly the appellate, levels of EOIR! Backlogs and unnecessary litigation would also begin to decrease — without bogus and wasteful “enforcement gimmicks” like Garland’s “Dedicated Dockets” designed and implemented from above by disconnected, sometimes clueless, bureaucrats as a toxic example of backlog-building “Aimless Docket Reshuffling!”
Not rocket science! 🚀 Too bad nobody at Garland’s DOJ appears to care much about human lives and taxpayer dollars going down the drain on an unfair, backlogged, and stunningly dysfunctional asylum system at EOIR and on the Southern Border. ☹️
🇺🇸Due Process Forever!
PWS
11-10-21
