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I. INTRODUCTION 1

II. BASIC PROCESS AND ADMINISTRATIVE STRUCTRUE 5

Process and Players 5

Consuls and the Visa Process 5

Adjustment of Status 6

Immigration and Naturalization Service 7

Immigration Judges and the Board of Immigration Appeals 7

Other Appeals 9

Terminology: Exclusion Versus Deportation 9

Key Documents 12

III. CONSTITUTIONAL FRAMEWORK 15

Federal and State Powers 15

Individual Rights 17

Substantive Provisions of the Immigration Laws 17

Applicability of Procedural Due Process Review 21

Standards for Procedural Due Process Review 25

Detention 30

IV. ADMISSION CATEGORIES 35

Nonimmigrant Categories 35

Immigrant Categories 36

Initiating the Admission Process 38

Family Reunification 39

Offspring 40

Marriages 42

Labor Certification 46

V. GROUNDS FOR EXCLUSION AND DEPORTATION 49

Grounds for Exclusion 50

Health Grounds 51

Economic Grounds 51

Criminal Grounds 51

Quasi-Criminal and Moral Grounds 52

Grounds Related to Immigration Processing 53

National-Security Grounds 53

Waivers of Excludability 54

Grounds for Deportation 55

Grounds Based on Preentry Characteristics 56

Grounds Based on Postentry Behavior 57

VI. RELIEF FROM DEPORTATION 61

Suspension of Deportation 61

Statutory Eligibility 62

Discretion 65

Motions to Reopen 67

Other Provisions Leading to Permanent Relief 69

Adjustment of Status 69

Registry 71

Section212(c) 71

Other Relief from Deportation 72

Voluntary Departure 72

Prosecutorial Discretion 75

Stay of Deportation 76

VII. POLITICAL ASYLUM 77

Background 78

Statutory Provisions 79

Procedures 83

Standards 84

Evidence 84

Basis of the Threat 87

Degree of Threat 88

VIII. JUDICIAL REVIEW 95

Background 95

Review in Accordance with the Administrative Procedure Act 96

Petitions for Review of Deportation Orders 98

Procedure 98

Pendent Jurisdiction 103

Exhaustion of Remedies 106

Departure While Review Is Pending 107

Judicial Review of Visa Denials 107

IX. ILLEGAL IMMIGRATION AND THE 1986 REFORMS 109

Overview 109

Employer Sanctions 111

Coverage 111

Verification 112

Documents 113

Enforcement and Penalties 114

Judicial Review 115

Transition 115

Antidiscrimination 115

Coverage 116

Procedures 117

Legalization 118

Scope 119

Benefits 120

Procedures 121

Cuban-Haitian Entrants 125

Agricultural Workers 125

H-2A Nonimmigrants 126

Special Agricultural Workers 126

Replenishment Agricultural Workers 128

ANNOTATED BIBLIOGRAPHY 131

TABLE OF CASES 139