Case: 3:18-cv-5169 As of: 01/18/2020 04:12 PM PST 1 of 7
ADRMOPTERM,APPEAL,CLOSED,RELATE
U.S. District Court California Northern District (San Francisco) CIVIL DOCKET FOR CASE #: 3:18−cv−05169−WHO

State of California v. Sessions et al Assigned to: Judge William H. Orrick Relate Case Case: 3:17−cv−00485−WHO Case in other court: 9th Circuit, 19−15950 Cause: 28:2201 Declaratory Judgement
Plaintiff
State of California STATE OF CALIFORNIA, ex rel, XAVIER BECERRA, in his official capacity as Attorney General of the State of California

Date Filed: 08/23/2018 Date Terminated: 03/04/2019 Jury Demand: None Nature of Suit: 890 Other Statutory Actions Jurisdiction: U.S. Government Defendant
represented by Cherokee Dawn−Marie Melton California Department of Justice Office of the Attorney General 300 S. Spring Street, Suite 1702 Los Angeles, CA 90013 213−269−6405 Email: Cherokee.Melton@doj.ca.gov ATTORNEY TO BE NOTICED
Garrett Murlan Lindsey California Department of Justice Civil Rights Enforcement Section 300 S. Spring St. Ste. 1702 Los Angeles, CA 90013 213−269−8402 Email: garrett.lindsey@doj.ca.gov ATTORNEY TO BE NOTICED
Sarah Elizabeth Belton 1515 Clay Street, Suite 2100 Oakland, CA 94612 510−879−0009 Email: Sarah.Belton@doj.ca.gov ATTORNEY TO BE NOTICED
Lee Isaac Sherman California Department of Justice 300 S. Spring Street Los Angeles, CA 90013 (213) 269−6404 Email: lee.sherman@doj.ca.gov ATTORNEY TO BE NOTICED

V.
Defendant
Jefferson Beauregard Sessions, III In his official capacity as Attorney General of United States

represented by Daniel D. Mauler U.S. Department of Justice Civil Division − Federal Programs Branch 20 Massachusetts Ave, NW Room 6141 Washington, DC 20530 202−616−0773 Email: dan.mauler@usdoj.gov LEAD ATTORNEY ATTORNEY TO BE NOTICED
W. Scott Simpson

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Defendant Laura L. Rogers In her official capacity as Acting Assistant Attorney General of United States Defendant United States Department of Justice UNITED STATES DEPARTMENT OF JUSTICE
Defendant Matt M. Dummermuth in his official capacity as Principal Deputy Assistant Attorney General
Defendant Mathew Whitaker
Defendant William P. Barr
Amicus Los Angeles Unified School District OFFICE OF GENERAL COUNSEL

U.S. Department of Justice, Civil Division 318 South Sixth Street, Room 244 Springfield, IL 62701 202−514−3495 Email: scott.simpson@usdoj.gov TERMINATED: 04/30/2019 LEAD ATTORNEY
represented by Daniel D. Mauler (See above for address) LEAD ATTORNEY ATTORNEY TO BE NOTICED
represented by Daniel D. Mauler (See above for address) LEAD ATTORNEY ATTORNEY TO BE NOTICED
W. Scott Simpson (See above for address) TERMINATED: 04/30/2019 LEAD ATTORNEY
represented by Daniel D. Mauler (See above for address) LEAD ATTORNEY ATTORNEY TO BE NOTICED
W. Scott Simpson (See above for address) TERMINATED: 04/30/2019 LEAD ATTORNEY
represented by Daniel D. Mauler (See above for address) LEAD ATTORNEY ATTORNEY TO BE NOTICED
W. Scott Simpson (See above for address) TERMINATED: 04/30/2019 LEAD ATTORNEY
represented by Daniel D. Mauler (See above for address) LEAD ATTORNEY ATTORNEY TO BE NOTICED
W. Scott Simpson (See above for address) TERMINATED: 04/30/2019 LEAD ATTORNEY
represented by Devora Montoya Navera LA Unified School District

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333 S. Beaudry Avenue, 24th Floor Los Angeles, CA 90017

Ofc General Counsel 333 S Beaudry Ave 20FL 20−184 Los Angeles, CA 90017 213−241−7650 Email: devora.naverareed@lausd.net LEAD ATTORNEY ATTORNEY TO BE NOTICED
Bryan Justin Park Dannis Woliver Kelley 115 Pine Ave. Suite 500 Long Beach, CA 90802 562−366−8500 Email: bpark@dwkesq.com ATTORNEY TO BE NOTICED
David Robert Holmquist , Myles David R Holmquist Office of the General Counsel 333 S. Beaudry Avenue 24th Floor Los Angeles, CA 90017 213−241−7601 Fax: 213−241−8444 Email: david.holmquist@lausd.net ATTORNEY TO BE NOTICED
Sue Ann Salmon Evans Dannis Woliver Kelley 115 Pine Avenue Suite 500 Long Beach, CA 90803 562−366−8500 Fax: 562−366−8505 Email: sevans@DWKesq.com ATTORNEY TO BE NOTICED

Date Filed 08/23/2018
08/23/2018 08/23/2018 08/23/2018 08/23/2018

# Docket Text
1 COMPLAINT FY 2018 JAG against All Defendants ( Filing fee $ 400, receipt number 0971−12619589.). Filed byState of California. (Attachments: # 1 Civil Cover Sheet Civil Cover Sheet)(Sherman, Lee) (Filed on 8/23/2018) (Entered: 08/23/2018)
2 Proposed Summons. (Sherman, Lee) (Filed on 8/23/2018) (Entered: 08/23/2018)
3 Proposed Summons. (Sherman, Lee) (Filed on 8/23/2018) (Entered: 08/23/2018)
4 Proposed Summons. (Sherman, Lee) (Filed on 8/23/2018) (Entered: 08/23/2018)
5 Case assigned to Magistrate Judge Kandis A. Westmore.
Counsel for plaintiff or the removing party is responsible for serving the Complaint or Notice of Removal, Summons and the assigned judge's standing orders and all other new case documents upon the opposing parties. For information, visit E−Filing A New Civil Case at http://cand.uscourts.gov/ecf/caseopening.
Standing orders can be downloaded from the court's web page at www.cand.uscourts.gov/judges. Upon receipt, the summons will be issued and returned electronically. Counsel is required to send chambers a copy of the initiating documents pursuant to L.R. 5−1(e)(7). A scheduling order will be sent by Notice of Electronic Filing (NEF) within two business days. Consent/Declination due by 9/6/2018. (as, COURT STAFF) (Filed on 8/23/2018) (Entered: 08/23/2018)

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08/24/2018 08/24/2018 08/31/2018 09/10/2018 09/11/2018
09/11/2018 09/11/2018
09/12/2018 10/12/2018 10/16/2018 10/16/2018
10/31/2018 11/01/2018 11/01/2018
11/01/2018

6 Summons Issued as to Laura L. Rogers, Jefferson Beauregard Sessions, III, United States Department of Justice, U.S. Attorney and U.S. Attorney General (Attachments: # 1 Summons, # 2 Summons)(jmlS, COURT STAFF) (Filed on 8/24/2018) (Entered: 08/24/2018)
7 Initial Case Management Scheduling Order with ADR Deadlines: Case Management Statement due by 11/20/2018. Initial Case Management Conference set for 11/27/2018 01:30 PM. (jmlS, COURT STAFF) (Filed on 8/24/2018) (Entered: 08/24/2018)
8 CERTIFICATE OF SERVICE by State of California (Sherman, Lee) (Filed on 8/31/2018) (Entered: 08/31/2018)
9 ORDER RELATING CASE − This matter is found to be related to Case No. 3:17cv485−WHO. Signed by Judge William H. Orrick on 09/10/2018. (jmdS, COURT STAFF) (Filed on 9/10/2018) (Entered: 09/10/2018)
10 Case Reassigned to Judge William H. Orrick. Magistrate Judge Kandis A. Westmore no longer assigned to the case. This case is assigned to a judge who participates in the Cameras in the Courtroom Pilot Project. See General Order 65 and http://cand.uscourts.gov/cameras. (jmlS, COURT STAFF) (Filed on 9/11/2018) (Entered: 09/11/2018)
11 CONSENT/DECLINATION to Proceed Before a US Magistrate Judge by State of California.. (Sherman, Lee) (Filed on 9/11/2018) (Entered: 09/11/2018)
12 CASE MANAGEMENT CONFERENCE ORDER − Case Management Conference set for 11/27/2018 02:00 PM in San Francisco, Courtroom 02, 17th Floor. Case Management Statement due by 11/20/2018. Signed by Judge William H. Orrick on 09/11/2018. (jmdS, COURT STAFF) (Filed on 9/11/2018) (Entered: 09/11/2018)
13 NOTICE of Appearance by Sarah Elizabeth Belton for Plaintiff State of California (Belton, Sarah) (Filed on 9/12/2018) (Entered: 09/12/2018)
14 MOTION for Extension of Time to File Response/Reply as to 1 Complaint filed by Jefferson Beauregard Sessions, III, United States Department of Justice, Matt M. Dummermuth. (Attachments: # 1 Declaration of W. Scott Simpson, # 2 Proposed Order)(Simpson, W.) (Filed on 10/12/2018) (Entered: 10/12/2018)
15 STIPULATION WITH PROPOSED ORDER Stipulation and [Proposed] Order on Amendment of Complaints and Defendants' Responses to Amended Complaints filed by State of California. (Sherman, Lee) (Filed on 10/16/2018) (Entered: 10/16/2018)
16 ORDER by Judge William H. Orrick granting (18) Stipulation in case 3:18−cv−05146−WHO and (15) Stipulation in case 3:18−cv−05169−WHO. Plaintiffs shall have until November 1, 2018 to file an amended complaint in this action. Defendants' responses to the complaints shall be due on December 3, 2018. (jmdS, COURT STAFF) (Filed on 10/16/2018) (Entered: 10/16/2018)
17 NOTICE of Appearance by Cherokee Dawn−Marie Melton for Plaintiff State of California (Melton, Cherokee) (Filed on 10/31/2018) (Entered: 10/31/2018)
18 Joint ADMINISTRATIVE MOTION Automatic Referral to the ADR Multi−Option Program filed by State of California. Responses due by 11/5/2018. (Attachments: # 1 Proposed Order)(Sherman, Lee) (Filed on 11/1/2018) (Entered: 11/01/2018)
19 ORDER ON JOINT ADMINISTRATIVE MOTION FOR RELIEF FROM AUTOMATIC REFERRAL TO THE ADR MULTI−OPTION PROGRAM by Judge William H. Orrick granting (20) Administrative Motion in case 3:18−cv−05146−WHO. Associated Cases: 3:18−cv−05146−WHO, 3:18−cv−05169−WHO (jmdS, COURT STAFF) (Filed on 11/1/2018) (Entered: 11/01/2018)
20 FIRST AMENDED COMPLAINT FOR DECLARATORY, INJUNCTIVE, AND MANDAMUS RELIEF; against Matt M. Dummermuth, Jefferson Beauregard Sessions, III, United States Department of Justice. Filed byState of California. (Attachments: # 1 Exhibit A−D)(Sherman, Lee) (Filed on 11/1/2018) Modified on 11/2/2018 (aaaS, COURT STAFF). (Entered: 11/01/2018)

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11/09/2018 11/20/2018 11/27/2018
12/03/2018 12/03/2018
12/04/2018 12/19/2018 12/21/2018 12/21/2018
12/21/2018 12/21/2018 12/27/2018 12/27/2018

21 NOTICE of Appearance by Garrett Murlan Lindsey (Lindsey, Garrett) (Filed on 11/9/2018) (Entered: 11/09/2018)
22 JOINT CASE MANAGEMENT STATEMENT ; [PROPOSED] Order filed by State of California. (Sherman, Lee) (Filed on 11/20/2018) Modified on 11/21/2018 (mclS, COURT STAFF). (Entered: 11/20/2018)
23 Minute Entry for proceedings held before Judge William H. Orrick: Case Management Conference held on 11/27/2018. Briefing schedule set and Motion Hearing on anticipated motion to enforce judgment scheduled for 12/21/2018 10:00 AM. Briefing schedule set and Motion Hearing on competing dispositive motions scheduled for 2/13/2019 02:00 PM. (Both hearings to be conducted in San Francisco, Courtroom 02, 17th Floor before Judge William H. Orrick.) FTR Time: 2:09−2:32. (jmdS, COURT STAFF) (Date Filed: 11/27/2018) (Entered: 11/27/2018)
24 NOTICE by Matt M. Dummermuth, United States Department of Justice, Matthew G. Whitaker of Filing of Administrative Record (Attachments: # 1 Admin. Record Part 1, # 2 Admin. Record Part 2, # 3 Admin. Record Part 3, # 4 Admin. Record Part 4)(Simpson, W.) (Filed on 12/3/2018) (Entered: 12/03/2018)
25 MOTION to Dismiss (Partial), MOTION for Summary Judgment (Partial) filed by Matt M. Dummermuth, United States Department of Justice, Matthew G. Whitaker. Motion Hearing set for 2/13/2019 02:00 PM in San Francisco, Courtroom 02, 17th Floor before Judge William H. Orrick. Responses due by 12/21/2018. Replies due by 1/16/2019. (Attachments: # 1 Defendants' Request for Judicial Notice, # 2 Proposed Order)(Simpson, W.) (Filed on 12/3/2018) (Entered: 12/03/2018)
26 Clerk's Notice of Video Recording Request. Video Camera hearings set for 12/21/2018 10:00 AM and 2/13/2019 02:00 PM. Objections to Video Recording due 12/11/2018. (jmdS, COURT STAFF) (Filed on 12/4/2018) (Entered: 12/04/2018)
27 Clerk's Notice CONSENTING TO Video Recording of hearing re: 155 Motion to Enforce in Case No. 17−cv−4701−WHO. (jmdS, COURT STAFF) (Filed on 12/19/2018) (Entered: 12/19/2018)
28 NOTICE by Matt M. Dummermuth, United States Department of Justice, Matthew G. Whitaker re 24 Notice (Other), Notice of Lodging (Simpson, W.) (Filed on 12/21/2018) (Entered: 12/21/2018)
29 MOTION for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment filed by State of California. Motion Hearing set for 2/13/2019 02:00 PM in San Francisco, Courtroom 02, 17th Floor before Judge William H. Orrick. Responses due by 1/16/2019. Replies due by 1/30/2019. (Attachments: # 1 Proposed Order, # 2 Request for Judicial Notice in Support of Plaintiff's Motion for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment, # 3 Declaration of Lee I. Sherman in Support of Plaintiff's Motion for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment)(Melton, Cherokee) (Filed on 12/21/2018) (Entered: 12/21/2018)
30 Appendix re 29 MOTION for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment (Part 1) filed byState of California. (Related document(s) 29 ) (Melton, Cherokee) (Filed on 12/21/2018) (Entered: 12/21/2018)
31 Appendix re 29 MOTION for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment (Part 2) filed byState of California. (Related document(s) 29 ) (Melton, Cherokee) (Filed on 12/21/2018) (Entered: 12/21/2018)
32 Clerk's Notice CONSENTING TO Video Recording of Motion Hearing set for 2/13/2019 in Cases 3:18−cv−05169−WHO and 3:18−cv−05146−WHO. (jmdS, COURT STAFF) (Filed on 12/27/2018) (Entered: 12/27/2018)
33 MOTION to Stay Proceedings in Light of Lapse of Appropriations filed by Matt M. Dummermuth, United States Department of Justice, Matthew G. Whitaker. Responses due by 1/10/2019. Replies due by 1/17/2019. (Attachments: # 1 Declaration of W.

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12/28/2018 01/02/2019 01/16/2019 01/16/2019 01/29/2019 01/29/2019 01/29/2019 01/30/2019
01/30/2019 01/30/2019 02/13/2019 02/14/2019 02/19/2019 03/01/2019

Scott Simpson, # 2 Proposed Order)(Simpson, W.) (Filed on 12/27/2018) (Entered: 12/27/2018)
34 ORDER REGARDING AMICUS BRIEFING. Signed by Judge William H. Orrick on 12/28/2018. (jmdS, COURT STAFF) (Filed on 12/28/2018) (Entered: 12/28/2018)
35 ORDER by Judge William H. Orrick denying (46) Motion to Stay in case 3:18−cv−05146−WHO; denying (33) Motion to Stay in case 3:18−cv−05169−WHO. (jmdS, COURT STAFF) (Filed on 1/2/2019) (Entered: 01/02/2019)
36 OPPOSITION/RESPONSE (re 29 MOTION for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment ) filed byMatt M. Dummermuth, United States Department of Justice, Mathew Whitaker. (Simpson, W.) (Filed on 1/16/2019) (Entered: 01/16/2019)
37 REPLY (re 25 MOTION to Dismiss (Partial) MOTION for Summary Judgment (Partial) ) filed byMatt M. Dummermuth, United States Department of Justice, Mathew Whitaker. (Simpson, W.) (Filed on 1/16/2019) (Entered: 01/16/2019)
38 Brief Motion for Leave to File Amicus Curiae Brief filed byLos Angeles Unified School District. (Attachments: # 1 Exhibit A − Proposed Amicus Curiae Brief)(Navera, Devora) (Filed on 1/29/2019) (Entered: 01/29/2019)
39 NOTICE of Appearance by Sue Ann Salmon Evans for Amicus Curiae Los Angeles Unified School District (Salmon Evans, Sue) (Filed on 1/29/2019) (Entered: 01/29/2019)
40 NOTICE of Appearance by Bryan Justin Park for Amicus Curiae Los Angeles Unified School District (Park, Bryan) (Filed on 1/29/2019) (Entered: 01/29/2019)
Electronic filing error. Re: 39 Notice of Appearance filed by Los Angeles Unified School District, 40 Notice of Appearance filed by Los Angeles Unified School District Attorney Devora Montoya Navera Reed Must Contact Attorneys' Admissions for the Northern District of California and Correct Their Name. After, Counsel is Instructed to E−file a Notice Regarding Change in Counsel's Name. Informing the Judge of this Correction. (aaaS, COURT STAFF) (Filed on 1/30/2019) (Entered: 01/30/2019)
41 REPLY (re 29 MOTION for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment ) filed byState of California. (Attachments: # 1 Supplemental Request for Judicial Notice & Exs. A−B)(Sherman, Lee) (Filed on 1/30/2019) (Entered: 01/30/2019)
42 ERRATA re Electronic Filing Error,, 38 Brief, 39 Notice of Appearance, 40 Notice of Appearance by Los Angeles Unified School District. (Navera, Devora) (Filed on 1/30/2019) (Entered: 01/30/2019)
43 TRANSCRIPT ORDER for proceedings held on 2/13/2019 before Judge William H. Orrick by Matt M. Dummermuth, United States Department of Justice, Mathew Whitaker, for Court Reporter Debra Pas. (Simpson, W.) (Filed on 2/13/2019) (Entered: 02/13/2019)
44 TRANSCRIPT ORDER for proceedings held on 2/13/2019 before Judge William H. Orrick by State of California, for Court Reporter Debra Pas. (Sherman, Lee) (Filed on 2/14/2019) (Entered: 02/14/2019)
45 Request for Judicial Notice re 29 MOTION for Summary Judgment and Opposition to Defendants' Partial Motions to Dismiss and for Summary Judgment and Exhibit A filed byState of California. (Related document(s) 29 ) (Sherman, Lee) (Filed on 2/19/2019) (Entered: 02/19/2019)
46 Transcript of Proceedings held on 2−13−2019, before Judge William H. Orrick. Court Reporter/Transcriber Debra L. Pas, CRR, telephone number (415) 431−1477/Email: Debra_Pas@cand.uscourts.gov. Per General Order No. 59 and Judicial Conference policy, this transcript may be viewed only at the Clerk's Office public terminal or may be purchased through the Court Reporter/Transcriber until the deadline for the Release

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03/04/2019 03/14/2019 03/22/2019 03/25/2019 03/26/2019 04/30/2019 05/03/2019
05/03/2019 11/08/2019 11/12/2019

of Transcript Restriction. After that date it may be obtained through PACER. Any Notice of Intent to Request Redaction, if required, is due no later than 5 business days from date of this filing. (Re (55 in 3:18−cv−05146−WHO) Transcript Order, (43 in 3:18−cv−05169−WHO) Transcript Order ) Release of Transcript Restriction set for 5/30/2019. (pasdl50S, COURT STAFF) (Filed on 3/1/2019) (Entered: 03/01/2019)
47 ORDER GRANTING PLAINTIFF'S MOTION FOR SUMMARY JUDGMENT AND DENYING DEFENDANTS' MOTION FOR PARTIAL DISMISSAL OR PARTIAL SUMMARY JUDGMENT. Signed by Judge William H. Orrick on 3/4/3019. (jmdS, COURT STAFF) (Filed on 3/4/2019) (Entered: 03/04/2019)
48 STIPULATION WITH PROPOSED ORDER re 47 Order Dismissing Case filed by Matt M. Dummermuth, United States Department of Justice, William P. Barr. (Simpson, W.) (Filed on 3/14/2019) (Entered: 03/14/2019)
49 Order by Judge William H. Orrick granting (61) Stipulation in case 3:18−cv−05146−WHO and associated case 3:18−cv−05169−WHO. The deadline to submit either a stipulated form or judgment or competing judgments is extended by one week to March 25, 2019. (jmdS, COURT STAFF) (Filed on 3/22/2019) (Entered: 03/22/2019)
50 STIPULATION WITH PROPOSED ORDER filed by State of California. (Attachments: # 1 Exhibit A − Proposed Judgment and Order)(Sherman, Lee) (Filed on 3/25/2019) (Entered: 03/25/2019)
51 JUDGMENT AND ORDER GRANTING PLAINTIFFS' MOTIONS FOR SUMMARY JUDGMENT by Judge William H. Orrick in case 3:18−cv−05146−WHO; granting (50) Stipulation in case 3:18−cv−05169−WHO. Associated Cases: 3:18−cv−05169−WHO, 3:18−cv−05146−WHO(jmdS, COURT STAFF) (Filed on 3/26/2019) (Entered: 03/26/2019)
52 NOTICE of Substitution of Counsel by Daniel D. Mauler and withdrawal of W. Scott Simpson as counsel for Defendants (Mauler, Daniel) (Filed on 4/30/2019) (Entered: 04/30/2019)
53 NOTICE OF APPEAL to the 9th Circuit Court of Appeals filed by William P. Barr, Matt M. Dummermuth, Laura L. Rogers, Jefferson Beauregard Sessions, III, United States Department of Justice, Mathew Whitaker. Appeal of Order on Stipulation, 51 (Appeal fee FEE WAIVED.) (Mauler, Daniel) (Filed on 5/3/2019) Modified on 11/8/2019 (aaaS, COURT STAFF). USCA NUMBER: 19−15950 (Entered: 05/03/2019)
54 USCA Case Number 19−15950 9th Circuit for 53 Notice of Appeal, filed by Jefferson Beauregard Sessions, III, United States Department of Justice, Matt M. Dummermuth, Mathew Whitaker, Laura L. Rogers, William P. Barr. (amgS, COURT STAFF) (Filed on 5/3/2019) (Entered: 05/10/2019)
55 ORDER of USCA These appeals remained stayed pending further order of the court. FOR THE COURT; as to 53 Notice of Appeal, filed by Jefferson Beauregard Sessions, III, United States Department of Justice, Matt M. Dummermuth, Mathew Whitaker, Laura L. Rogers, William P. Barr (aaaS, COURT STAFF) (Filed on 11/8/2019) (Entered: 11/08/2019)
56 AMENDED 55 ORDER of USCA These appeals remained stayed pending order of this court. Counsel should contact the undersigned by email within 10 days after this court's decision in City & County of San Francisco v. Barr, Appeals Nos. 18−17308, 18−17311. FOR THE COURT; as to 53 Notice of Appeal, filed by Jefferson Beauregard Sessions, III, United States Department of Justice, Matt M. Dummermuth, Mathew Whitaker, Laura L. Rogers, William P. Barr (aaaS, COURT STAFF) (Filed on 11/12/2019) (Entered: 11/12/2019)

 
 Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 1 of 153

1 XAVIER BECERRA Attorney General of California
2 MICHAEL NEWMAN Senior Assistant Attorney General
3 SATOSHI YANAI Supervising Deputy Attorney General
4 SARAH E. BELTON LEE I. SHERMAN (SBN 272271)
5 Deputy Attorneys General 300 S. Spring St., Suite 1702
6 Los Angeles, CA 90013 Telephone: (213) 269-6404
7 Fax: (213) 897-7605 E-mail: Lee.Sherman@doj.ca.gov
8 Attorneys for Plaintiff State of California

9

IN THE UNITED STATES DISTRICT COURT

10

FOR THE NORTHERN DISTRICT OF CALIFORNIA

11

SAN FRANCISCO DIVISION

12

13

STATE OF CALIFORNIA, ex rel, XAVIER Case No.

14 BECERRA, in his official capacity as

Attorney General of the State of California,

15

Plaintiff, COMPLAINT FOR DECLARATORY,

16

INJUNCTIVE, AND MANDAMUS

v.

RELIEF

17

18 JEFFERSON B. SESSIONS, in his official capacity as Attorney General of the United
19 States; LAURA L. ROGERS, in her official capacity as Acting Assistant Attorney
20 General; UNITED STATES DEPARTMENT OF JUSTICE; and DOES
21 1-100,

22

Defendants.

23

24

25

26

27

28

Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 2 of 153

1

1. Plaintiff State of California, ex rel. Xavier Becerra, California Attorney General

2 (“Plaintiff” or “California”), brings this complaint to protect California from the latest attempt by

3 the Trump Administration to strip law enforcement funding from the State unless the State and

4 local governments in California agree to participate in the Administration’s immigration

5 enforcement program.

6

2. Congress has appropriated $28.9 million in law enforcement funding to California

7 and its political subdivisions pursuant to the Edward Byrne Memorial Justice Assistance Grant

8 (“JAG”) program. The United States Department of Justice (“USDOJ”), led by Attorney General

9 Jefferson B. Sessions III, and the Office of Justice Programs (“OJP”), led by Acting Assistant

10 Attorney General Laura L. Rogers (collectively, with USDOJ and Attorney General Sessions, the

11 “Defendants”), are responsible for administering these grants. JAG awards are provided to each

12 state, and certain local jurisdictions within each state, to, among other things, support law

13 enforcement programs, reduce recidivism, conduct crime prevention and education programs for

14 at-risk youth, and support programs for crime victims and witnesses. Every state is entitled by

15 law to a share of these funds.

16

3. In fiscal year (FY) 2017, Defendants added unprecedented immigration enforcement

17 conditions to JAG funding. Courts across the country have struck those conditions down as

18 unconstitutional. See Chicago v. Sessions, 888 F.3d 272 (7th Cir. 2018); Chicago v. Sessions,

19 No. 17-cv-5720, ---F. Supp. 3d.---, 2018 WL 3608564, at *12 (N.D. Ill. July 27, 2018), appeal

20 docketed, 18-2649 (7th Cir. Aug. 1, 2018); Philadelphia v. Sessions, 309 F. Supp. 3d 289 (E.D.

21 Pa. 2018), appeal docketed, 18-2648 (3d Cir. July 26, 2018).

22

4. Rather than re-consider the lawfulness of the conditions, in the JAG FY 2018

23 Solicitations for state and local jurisdictions,1 Defendants have maintained a requirement that the

24 chief law officer of the jurisdiction applying for funding (the Attorney General in the case of the

25 State) must certify compliance with 8 U.S.C. § 1373, which prohibits restrictions on certain

26

1 U.S. Dep’t of Justice, Edward Byrne Memorial Justice Assistance Grant Program: FY

2018 State Solicitation (2018) (“JAG State Solicitation) (attached as Ex. A); see also U.S. Dep’t 27 of Justice, Edward Byrne Memorial Justice Assistance Grant Program: FY 2018 Local

Solicitation (2018) (“JAG Local Solicitation,” collectively with the JAG State Solicitation, “JAG 28 Solicitations”) (attached as Ex. B).

1

Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 3 of 153

1 exchanges of information regarding a person’s immigration or citizenship status. Three federal

2 courts have recently called into question the legality of § 1373 or declared it unconstitutional. In

3 order to receive FY 2018 JAG funding, Defendants also require that jurisdictions certify

4 compliance with 8 U.S.C. § 1644, certify to not violating or aiding or abetting a violation of 8

5 U.S.C. § 1324(a), and certify to not “imped[ing] the exercise by federal officers of authority”

6 under or relating to 8 U.S.C. §§ 1226(a) & (c), 1357(a), and 1366(1) & (3). Plaintiff refers to

7 these requirements collectively as the “Certification Requirements.”

8

5. Defendants claim that these are “applicable Federal laws.” But jurisdictions have

9 never been required to certify compliance with any of the laws that have been added to the FY

10 2018 JAG Solicitations. Congress has not tied any of these laws, including § 1373, to federal

11 grant-making. Most of these laws have no applicability to state and local governments. In

12 addition, these requirements conflict with Congress’s intent to not condition federal funding on

13 immigration enforcement related activities.

14

6. In addition, since Congress did not attach these requirements to federal funding,

15 Defendants lack authority under the JAG authorizing statute to interpret “applicable Federal

16 laws” in a manner that would result in commandeering state and local government functions in

17 violation of the Tenth Amendment of the U.S. Constitution. These Certification Requirements

18 intrude on the sovereignty of California and its local jurisdictions by interpreting federal law to

19 prevent the State from declining participation in federal immigration enforcement.

20

7. Defendants have exceeded constitutional limits under the Spending Clause of the

21 United States Constitution. The Certification Requirements are not sufficiently related to the

22 federal purpose areas of the JAG funding scheme designed by Congress and are too ambiguous to

23 provide clear notice to the State or its political subdivisions as to what is needed to comply. These

24 Certification Requirements are so vague that it is unclear whether to comply with the

25 Certification Requirements, law enforcement agencies (“LEAs”) would have to comply with

26 detainer holds that require jurisdictions to hold persons in custody beyond their ordinary release.

27 Courts throughout the country have found detainer holds violate the Fourth Amendment because

28 they are typically not supported by the requisite probable cause. If Defendants read the 2
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1 Certification Requirements as requiring jurisdictions to comply with detainer holds, or requiring

2 that state and local governments allow their law enforcement officers to comply with detainer

3 holds, then the Certification Requirements are unconstitutional for this additional reason.

4

8. The Certification Requirements also violate the Administrative Procedure Act

5 (“APA”) because of their constitutional infirmities, and because Defendants acted in excess of

6 their statutory authority and in an arbitrary and capricious manner.

7

9. California complies with all of the requirements identified in the JAG authorizing

8 statute, and that apply to federal grantees under federal law. While California’s laws comply with

9 the Immigration and Nationality Act (“INA”), since the Certification Requirements are

10 ambiguous and exceed what may be required under “applicable Federal law,” California will

11 most certainly face an enforcement action if it agrees to the Certification Requirements.

12 Defendants have already withheld JAG awards from all state entities and local jurisdictions in

13 California because under their theory, California does not comply with § 1373. The United States

14 already sued California in the Eastern District of California, unsuccessfully claiming that Senate

15 Bill 54, which consists of the Amended Transparency and Responsibility Using State Tools Act

16 (“TRUST Act”), Cal. Gov’t Code §§ 7282-7282.5, and the California Values Act, Cal. Gov’t

17 Code §§ 7284-7284.12, “impedes” federal immigration officials in violation of federal law.

18 However, as that court found, California’s laws do not stand as an obstacle to prevent

19 immigration authorities from doing their jobs using their own resources. Instead, California’s

20 laws are designed to foster community trust between law enforcement and the communities they

21 serve, and to allocate limited law enforcement resources in a manner that is in the best interest of

22 the State’s public safety. Defendants cannot enforce the “applicable Federal laws” in the manner

23 that they intend to because such an erroneous interpretation of these federal laws would allow the

24 federal government to commandeer the State’s direction of its law enforcement.

25

10. Not only are these Certification Requirements unlawful, but agreeing to them will

26 cause California harm by requiring that the State and local jurisdictions terminate their public

27 safety oriented laws and policies. This means that the State and its localities will lose control of

28 their ability to focus their resources on fighting crime and instead will devote resources to federal 3
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1 immigration enforcement. The trust and cooperation that the State’s laws and local ordinances

2 are intended to build between law enforcement and immigrant communities will be eroded.

3 Alternatively, if the State refuses to comply with the Certification Requirements, important public

4 safety programs that JAG is intended to fund will likely need to be cut to the detriment of state

5 and local law enforcement agencies and their budgets.

6

11. For these reasons, and those discussed below, the Court should declare the

7 Certification Requirements are unconstitutional and/or a violation of the APA, enjoin their

8 imposition, and pursuant to 28 U.S.C. § 1361 require that Defendants issue JAG awards and

9 funding to the State and its local jurisdictions that comply with the requirements enumerated by

10 Congress.

11

JURISDICTION AND VENUE

12

12. Jurisdiction is proper in this Court pursuant to 28 U.S.C. § 1331 because this case

13 involves a civil action arising under the Constitution and the laws of the United States. The Court

14 also has jurisdiction under 28 U.S.C. § 1346 because this is a civil action against the federal

15 government founded upon the Constitution and an Act of Congress. Jurisdiction is proper under

16 the judicial review provisions of the Administrative Procedure Act, 5 U.S.C. §§ 701-06. The

17 Court has authority to provide relief under the Declaratory Judgment Act, 28 U.S.C. § 2201, and

18 the Mandamus Statute, 28 U.S.C. § 1361.

19

13. Pursuant to 28 U.S.C. § 1391(e)(1), venue is proper in the Northern District of

20 California because the Attorney General and the State of California have offices at 455 Golden

21 Gate Avenue, San Francisco, California and at 1515 Clay Street, Oakland, California, and

22 Defendants have offices at 450 Golden Gate Avenue, San Francisco, California.

23

INTRADISTRICT ASSIGNMENT

24

14. Assignment to the San Francisco Division of this District is proper pursuant to Civil

25 Local Rule 3-2(c)-(d) because Plaintiff, the State of California, and Defendants both maintain

26 offices in the District in San Francisco.

27

PARTIES

28

15. Plaintiff State of California is a sovereign state in the United States of America.

4

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1

16. California is aggrieved by the actions of Defendants and has standing to bring this

2 action because of the injury to its sovereignty as a State caused by the challenged federal actions.

3 The inclusion of unconstitutional and unlawful Certification Requirements as part of the JAG

4 award impairs the State’s exercise of its police power in a manner it deems necessary to protect

5 the public safety. The Certification Requirements burden California’s exercise of its sovereign

6 power to enforce its laws, and place a regulatory burden on California as a funding recipient,

7 obligating the State to continuously monitor compliance of all subgrantees throughout the State,

8 which will result in increased staff time and expenses.

9

17. As a result of Defendants’ unconstitutional and unlawful actions, the State of

10 California, including its political subdivisions, is in imminent danger of losing $28.9 million this

11 fiscal year, including $18 million that is owed to the State itself.

12

18. Plaintiff Attorney General Xavier Becerra is the chief law officer of the State and the

13 head of the California Department of Justice. Cal. Const., art. V, § 13; Cal. Gov’t Code § 12510.

14 Attorney General Becerra, on behalf of California, has standing to bring this action because

15 funding for law enforcement throughout the State is at stake. See Pierce v. Super. Ct., 1 Cal.2d

16 759, 761-62 (1934) (Attorney General “has the power to file any civil action or proceeding

17 directly involving the rights and interests of the state . . . and the protection of public rights and

18 interests.”). As the Chief Law Officer, the Attorney General is responsible for ensuring that the

19 laws of the State are enforced. Cal. Const., art. V, § 13. The Certification Requirements

20 undermine California statutes. In addition, the Attorney General has standing on the basis of the

21 requirement that he personally agree to the Certification Requirements.

22

19. Defendant U.S. Department of Justice (“USDOJ”) is an executive department of the

23 United States of America pursuant to 5 U.S.C. § 101, and a federal agency within the meaning of

24 28 U.S.C. § 2671. As such, it engages in agency action within the meaning of 5 U.S.C. § 702,

25 and is named as a defendant in this action pursuant to 5 U.S.C. § 702. USDOJ is responsible for

26 administering the JAG funds appropriated by Congress.

27

28 5
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1

20. Defendant Jefferson B. Sessions III, is Attorney General of the United States, and

2 oversees USDOJ, including the Office of Justice Programs (“OJP”). He is sued in his official

3 capacity pursuant to 5 U.S.C. § 702.

4

21. Defendant Laura L. Rogers is Acting Assistant Attorney General in charge of OJP,

5 which administers JAG funding. She is sued in her official capacity pursuant to 5 U.S.C. § 702.

6

22. Each of the Defendants named in this Complaint are acting in their official capacity

7 for the United States government bearing responsibility, in whole or in part, for the acts

8 enumerated in this Complaint.

9

23. The true names and capacities of Defendants identified as DOES 1-100 are unknown

10 to Plaintiff, and Plaintiff will amend this Complaint to insert the true names and capacities of

11 those fictitiously named Defendants when they are ascertained.

12

FACTUAL ALLEGATIONS

13 I. 14

CALIFORNIA’S LAWS SEEK TO PROTECT THE SAFETY AND WELFARE OF THE STATE’S RESIDENTS BY FOCUSING LAW ENFORCEMENT ON CRIMINAL ACTIVITY AND BUILDING TRUST BETWEEN LAW ENFORCEMENT AND COMMUNITIES

15

24. California state and local law enforcement agencies (“LEAs”), guided by the duly

16 enacted laws of the State and ordinances of local jurisdictions, are tasked with effectively

17 policing, protecting, and serving all residents, including more than 10 million foreign-born

18 individuals who live in the State. California’s laws implicated in this suit are a valid exercise of

19 the State’s police power to regulate regarding the health, welfare, and public safety of its

20 residents. These laws strengthen community policing efforts by encouraging undocumented

21 victims to report crimes to local law enforcement so that perpetrators are apprehended before

22 harming others.

23

25. The purpose of these California laws is to ensure that law enforcement resources are

24 focused on a core public safety mission and to build trust and cooperation between law

25 enforcement and the State’s immigrant communities. When local and state LEAs engage in

26 immigration enforcement, as Defendants contemplate, vulnerable victims and witnesses are less

27 likely to come forward to report crimes.

28 6
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1

26. California’s laws are not unique. Many jurisdictions across the country, including

2 local jurisdictions in California, have policies that define the circumstances under which local law

3 enforcement personnel may expend time and resources in furtherance of federal immigration

4 enforcement. Those jurisdictions variously impose limits on compliance with Immigration and

5 Customs Enforcement (“ICE”) detainer requests, ICE notification requests about release dates,

6 and ICE’s access to detainees, or provide additional procedural protections for individuals prior to

7 an interview with immigration authorities.

8

A. The TRUST Act

9

27. In 2013, California enacted the TRUST Act, Cal. Gov’t Code §§ 7282-7282.5. The

10 TRUST Act defined the circumstances under which local LEAs may detain an individual at the

11 request of federal immigration authorities. The TRUST Act went into effect on January 1, 2014.

12

28. The TRUST Act was intended to address numerous public safety concerns regarding

13 the federal practice of issuing detainers to local law enforcement. Among the Legislature’s

14 concerns were that federal courts have concluded that detainer requests do not provide sufficient

15 probable cause to satisfy the requirements of the Fourth Amendment, and data showing that

16 detainer requests “have erroneously been placed on United States citizens, as well as immigrants

17 who are not deportable.” Assem. Bill No. 4, 1st Reg. Sess. (Cal. 2013) § 1(c).

18

29. The TRUST Act previously set forth two conditions that local law enforcement must

19 meet to have discretion to detain a person pursuant to an “immigration hold” (also known as a

20 “detainer request” or “detainer hold”), which is when an immigration authority requests that the

21 law enforcement official “maintain custody of the individual for a period not to exceed 48 hours,

22 excluding Saturdays, Sundays, and holidays.” Cal. Gov’t Code § 7282(c) (prior to amendments

23 codified on Oct. 5, 2017). First, the detention could not “violate any federal, state, or local law,

24 or any local policy,” which includes the Fourth Amendment of the U.S. Constitution. Id. §

25 7282.5(a) (prior to amendments codified on Oct. 5, 2017). Second, law enforcement could only

26 detain someone with certain, specified criminal backgrounds, an individual on the California Sex

27 and Arson Registry, or a person charged with a serious or violent felony who was the subject of a

28 probable cause determination from a magistrate judge. Id. § 7282.5(a)(1)-(6) (prior to 7
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1 amendments codified on Oct. 5, 2017). Only when both of these conditions were met could local

2 law enforcement detain an individual “on the basis of an immigration hold after the individual

3 becomes eligible for release from custody.” Id. § 7282.5(b).

4

B. The TRUTH Act

5

30. In 2016, California enacted the TRUTH Act, Cal. Gov’t Code §§ 7283-7283.2, which

6 took effect on January 1, 2017. The purpose of the TRUTH Act is to increase transparency about

7 immigration enforcement and “to promote public safety and preserve limited local resources

8 because entanglement between local law enforcement and ICE undermines community policing

9 strategies and drains local resources.” Assem. Bill No. 2792, Reg. Sess. (Cal. 2016) § 2(a)-(c),

10 (g)-(i).

11

31. Under the TRUTH Act, prior to ICE interviewing someone being held in custody, a

12 law enforcement officer must provide the detained individual with a “written consent form that

13 explains the purpose of the interview, that the interview is voluntary, and that he or she may

14 decline to be interviewed or may choose to be interviewed only with his or her attorney present.”

15 Cal. Gov’t Code § 7283.1(a). In addition, when a LEA receives a detainer, notification, or

16 transfer request, the LEA must “provide a copy of the request to the [detained] individual and

17 inform him or her whether the law enforcement agency intends to comply with the request.” Id. §

18 7283.1(b). If the LEA complies with ICE’s request to notify ICE as to when the individual will

19 be released, it must also “promptly provide the same notification in writing to the individual and

20 to his or her attorney or to one additional person who the individual shall be permitted to

21 designate.” Id.

22

C. The California Values Act

23

32. On October 5, 2017, Governor Edmund G. Brown Jr. signed into law the California

24 Values Act, Cal. Gov’t Code §§ 7284-7284.12, which took effect on January 4, 2018. In

25 conjunction with this measure, California amended the TRUST Act.

26

33. The Values Act sets the parameters under which California law enforcement agencies

27 may participate in immigration enforcement. The California Department of Corrections and

28 8
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1 Rehabilitation (“CDCR”) is not considered a “California law enforcement agency” for purposes

2 of the Values Act. Cal. Gov’t Code § 7284.4(a).

3

34. Consistent with the Legislature’s purpose in passing the TRUST and TRUTH Acts, in

4 its findings, the Legislature emphasized that “[a] relationship of trust between California’s

5 immigrant community and state and local agencies is central to the public safety of the people of

6 California.” Id. § 7284.2(b). The Legislature recognized “[t]his trust is threatened when state and

7 local agencies are entangled with federal immigration enforcement, with the result that immigrant

8 community members fear approaching police when they are victims of, and witnesses to, crimes,

9 seeking basic health services, or attending school, to the detriment of public safety and the well-

10 being of all Californians.” Id. § 7284.2(c). The Legislature declared that the focus of the Values

11 Act is “to ensure effective policing, to protect the safety, well-being, and constitutional rights of

12 the people of California, and to direct the state’s limited resources to matters of greatest concern

13 to state and local governments.” Id. § 7284.2(f).

14

35. The Values Act generally prohibits California law enforcement agencies from using

15 agency money or personnel to ask an individual about his or her immigration status for

16 immigration enforcement purposes. Id. § 7284.6(a)(1)(A).

17

36. The Values Act, expanding upon the limitations contained in the prior iteration of the

18 TRUST Act, prohibits compliance with detainer requests. See id. § 7284.6(a)(1)(B). In doing so,

19 the Legislature recognized that federal courts have found state and local law enforcement

20 compliance with detainer holds to be in violation of the Fourth Amendment when the detainer

21 holds are not supported by the requisite probable cause. See id. § 7284.2(e). Presently, it is ICE

22 policy to attach an administrative warrant to a detainer hold.2 However, that administrative

23 warrant is signed by an administrative officer, and not a federal judge. See id. The administrative

24 warrant only provides “probable cause . . . that the subject is an alien who is removable from the

25 United States,” but does not provide probable cause that the subject of the detainer hold is

26 believed to have violated a criminal offense. Id.

27

2 U.S. Immigration and Customs Enforcement, Issuance of Immigration Detainers by ICE

Immigration Officers, § 2.4 (Mar. 24, 2017), 28 https://www.ice.gov/sites/default/files/documents/Document/2017/10074-2.pdf.

9

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1

37. In conjunction with the passage of the Values Act, the TRUST Act was amended to

2 identify the circumstances when local law enforcement has discretion to respond to notification

3 requests. Id. § 7282.5(a). “Notification request[s]” are requests by an immigration authority

4 asking that a law enforcement official inform it “of the release date and time in advance of the

5 public of an individual in its custody.” Id. §§ 7282(c), 7283(f). Notification requests are made by

6 immigration authorities on the I-247A form that also includes a detainer request.3

7

38. Under the Values Act, LEAs have discretion to comply with notification requests if

8 doing so would not “violate any federal, state, or local law, or local policy.” Cal. Gov’t Code §

9 7282.5(a); see id. § 7284.6(a)(1)(C). In addition, the Values Act allows LEAs to comply with

10 notification requests under one of two scenarios. First, LEAs may respond to notification

11 requests regarding someone who was previously convicted of one or more of a multitude of

12 felonies or misdemeanors identified in the TRUST Act, a person charged with one or more of an

13 array of felonies who was subject to a probable cause determination from a magistrate judge, or

14 an individual on the California Sex and Arson Registry. Id. § 7282.5. Alternatively, LEAs may

15 comply with a notification request if the information requested is already “available to the

16 public.” Id. § 7284.6(a)(1)(C).

17

39. The Values Act prohibits LEAs from using agency or department money or personnel

18 to “[p]rovid[e] personal information, as defined in Section 1798.3 of the Civil Code, about an

19 individual” “for immigration enforcement purposes,” unless that information is publicly

20 available. Id. § 7284.6(a)(1)(D). “Personal information” is defined in the Civil Code as any

21 information “that identifies or describes an individual, including, but not limited to, his or her

22 name, social security number, physical description, home address, home telephone number,

23 education, financial matters, and medical or employment history” and “includes statements made

24 by, or attributed to, the individual.” Cal. Civ. Code § 1798.3(a).

25

40. The Values Act also limits when a LEA may transfer an individual to immigration

26 authorities. Cal. Gov’t Code § 7284.6(a)(4). Under the Values Act, LEAs may transfer a person

27 3 Department of Homeland Security, Immigration Detainer - Notice of Action,
28 https://www.ice.gov/sites/default/files/documents/Document/2017/I-247A.pdf. 10
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1 to immigration authorities under two scenarios. First, the LEA may transfer a person to

2 immigration authorities if the immigration authority presents a judicial warrant or judicial

3 probable cause determination by a federal judge or a federal magistrate judge for a violation of

4 federal criminal immigration law. Id. §§ 7284.4(h) & (i), 7284.6(a)(4). Second, LEAs may

5 respond to transfer requests regarding someone who was previously convicted of one or more of a

6 multitude of felonies or misdemeanors identified in the TRUST Act, or an individual on the

7 California Sex and Arson Registry. Id. § 7282.5(a).

8

41. The Values Act expressly authorizes compliance with all aspects of §§ 1373 and

9 1644. Id. § 7284.6(e).

10

42. Neither the Values nor TRUTH Acts prohibit a jurisdiction from allowing ICE to

11 access its jails to interview inmates. The Values Act explicitly reaffirms the absence of any such

12 restriction, and requires only that state and local law enforcement, including CDCR, comply with

13 the TRUTH Act when providing such access to immigration authorities. Id. §§ 7284.6(b)(5),

14 7284.10(a).

15 II. CONGRESS DID NOT INTEND JAG TO BE CONDITIONED ON STATE AND LOCAL LAW ENFORCEMENT ASSISTING IN FEDERAL IMMIGRATION ENFORCEMENT
16 43. JAG is administered by OJP within USDOJ. JAG funding is authorized by Congress
17 under 34 U.S.C. §§ 10151-10158. The authorizing statute has been amended numerous times
18 since its inception in 1988, evolving into the JAG program as it exists today.
19 44. The Anti-Drug Abuse Act of 1988 amended the Omnibus Crime Control and Safe
20 Streets Act of 1968 to create the Edward Byrne Memorial State and Local Law Enforcement
21 Assistance Programs grants (“Byrne Grants”) “to assist States and units of local government in
22 carrying out specific programs which offer a high probability of improving the functioning of the
23 criminal justice system.” Anti-Drug Abuse Act of 1988, Pub. L. No. 100-690, tit. VI, § 6091(a),
24 102 Stat. 4181, 4328 (1988) (repealed 2006). Congress placed a “special emphasis” on programs
25 that support national drug control priorities across states and jurisdictions. Id. Congress
26 identified 21 “purpose areas” for which Byrne Grants could be used. Many of the purpose areas
27

28 11
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1 relate to the investigation, enforcement, and prosecution of drug offenses. See id. Immigration

2 enforcement was never specified in any of the grant purpose areas.

3

45. In amendments between 1994 and 2000, Congress identified eight more purpose areas

4 for which Byrne funding could be used, bringing the total to 29. 42 U.S.C. § 3751(b) (as it

5 existed on Dec. 21, 2000) (repealed 2006). Immigration enforcement was not specified in any of

6 these eight additional purpose areas.

7

46. For FY 1996, Congress separately authorized Local Law Enforcement Block Grants

8 (“LLEBG”) that directed payment to units of local government for the purpose of hiring more

9 police officers or “reducing crime and improving public safety.” Local Government Law

10 Enforcement Block Grants Act of 1995, H.R. 728, 104th Cong. (1995). Congress identified nine

11 “purpose areas” for LLEBG, none of which were immigration enforcement. Id.

12

47. The Byrne Grant and LLEBG programs were then merged to eliminate duplication,

13 improve their administration, and to provide state and local governments “more flexibility to

14 spend money for programs that work for them rather than to impose a ‘one size fits all’ solution”

15 to local law enforcement. H.R. Rep. No. 109-233, at 89 (2005); see also Pub. L. No. 108-447,

16 118 Stat. 2809, 2863 (2004); 34 U.S.C. § 10151(a), (b)(1).

17

48. Currently, the JAG authorizing statute enumerates eight purpose areas for: (A) law

18 enforcement programs; (B) prosecution and court programs; (C) prevention and education

19 programs; (D) corrections and community corrections programs; (E) drug treatments and

20 enforcement programs; (F) planning, evaluation, and technology improvement programs; (G)

21 crime victim and witness programs; and (H) mental health programs related to law enforcement

22 and corrections. 34 U.S.C. § 10152(a)(1).

23

49. The purpose areas for these grants are to support criminal justice programs.

24 Immigration enforcement and removal procedures, however, are generally civil in nature. See

25 Arizona v. U.S., 567 U.S. 387, 396 (2012). Immigration enforcement was never specified in the

26 purpose areas for any of these grants throughout this entire legislative history.

27

50. In 2006, Congress repealed the only immigration enforcement related requirement

28 that had ever existed for JAG funding, a requirement that the chief executive officer of the state 12
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1 receiving JAG funding provide certified records of criminal convictions of “aliens.” See

2 Immigration Act of 1990, Pub. L. No. 101-649, tit. V, § 507(a), 104 Stat. 4978, 5050-51 (1990);

3 Miscellaneous and Technical Immigration and Naturalization Amendments of 1991, Pub. L. No.

4 102-232, tit. III, § 306(a)(6), 105 Stat. 1733, 1751 (1991) (repealed 2006). This is consistent with

5 the statutory scheme that does not include a purpose area connected to immigration enforcement

6 The repeal of this provision also evidences Congress’ intent not to condition JAG funding on

7 immigration enforcement related activities.

8

51. In addition, more recently, Congress has considered but repeatedly declined to adopt

9 legislation that would penalize cities for setting their own law enforcement priorities and attempt

10 to impose conditions similar to those here.4

11 III. JAG’S STRUCTURE REQUIRES THAT STATE AND LOCAL JURISDICTIONS RECEIVE FORMULA GRANTS
12
A. The JAG Formula Structure and Conditions 13
52. When creating the merged JAG funding structure in 2006, Congress set a formula to 14
apportion JAG funds to state and local jurisdictions. 34 U.S.C. § 10156. Population and violent 15
crime rates are used to calculate each state’s allocation. Id. § 10156(a)(1). Congress guarantees 16
to each state a minimum allocation of JAG funds. Id. § 10156(a)(2). 17
53. In addition to determining the amount of money received by grantees within each 18
state, Congress set forth how that money is to be shared between state and local jurisdictions. 19
Under the statutory formula, 60 percent of the total allocation to a state must be given directly to 20
the state. Id. § 10156(b)(1). 21
54. The statutory formula also provides that 40 percent of the total allocation to a state 22
must be given to local governments within the state. Id. § 10156(d)(1). Each unit of local 23
government receives funds based on its crime rate. Id. § 10156(d)(2)(A). 24

25 4 See Securing America’s Future Act of 2018, H.R. 4760, 115th Cong. (2018) (voted down by
26 the House by a vote of 231-193); see also, e.g., No Sanctuary for Criminals Act, H.R. 3003, 115th Cong. (2017); Ending Sanctuary Cities Act of 2016, H.R. 6252, 114th Cong. (2016); Stop Dangerous
27 Sanctuary Cities Act, S. 3100, 114th Cong. (2016); Stop Sanctuary Policies and Protect Americans Act, S. 2146, 114th Cong. (2015); Sanctuary City All Funding Elimination Act of 2015, H.R. 3073,
28 114th Cong. (2015).
13
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1

55. According to Congress’s JAG funding scheme, states and local governments that

2 apply for JAG funds are required to make limited certifications and assurances. Beyond

3 ministerial requirements identified in the authorizing statute, the chief executive officer of each

4 applicant must certify that: (A) the law enforcement programs to be funded meet all requirements

5 of the JAG authorizing statute; (B) all information in the application is correct; (C) there was

6 coordination with affected agencies; and (D) the applicant will comply with all provisions of the

7 JAG authorizing statute and all other applicable Federal laws. Id. § 10153(a)(5).

8

B. California’s Allocation and Use of the JAG Award

9

56. Based on the formula prescribed by statute, California is expected to receive

10 approximately $28.9 million in JAG funding in FY 2018, with $18 million going to the Board of

11 State and Community Corrections (“BSCC”), the entity that receives the formula grant funds that

12 are allocated to the State.

13

57. The BSCC has disbursed JAG funding using subgrants predominately to local

14 jurisdictions throughout California to fund programs that meet the purpose areas identified in the

15 JAG authorizing statute. Between Fiscal Years 2015-17, the BSCC funded 32 local jurisdictions

16 and the California Department of Justice.

17

58. In the past, the BSCC prioritized subgrants to those jurisdictions that focus on

18 education and crime prevention programs, law enforcement programs, and court programs,

19 including indigent defense. Some examples of California jurisdictions’ purpose-driven use of

20 JAG funds include: (a) implementing programs to improve educational outcomes, increase

21 graduation rates, and curb truancy; (b) providing youth and adult gang members with multi-

22 disciplinary education, employment, treatment, and other support services to prevent gang

23 involvement, reduce substance abuse, and curtail delinquency and recidivism; (c) implementing

24 school-wide prevention and intervention initiatives for high-risk students; (d) providing

25 comprehensive post-dispositional advocacy and reentry services to improve outcomes and reduce

26 recidivism for juvenile probationers; (e) providing a continuum of detention alternatives to

27 juvenile offenders who do not require secure detention, which includes assessment, referral, case

28 advocacy, home detention, reporting centers, intensive case management, and wraparound family 14
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1 support services; and (f) funding diversion and re-entry programs for both minors and young

2 adult offenders.

3 IV. DEFENDANTS’ ESCALATING ADDITION OF IMMIGRATION ENFORCEMENT REQUIREMENTS TO JAG
4

A. The Addition of the § 1373 Certification Requirements and Subsequent

5

Actions to Withhold Funding from the State

6

59. In FY 2016, OJP first announced that 8 U.S.C. § 1373 was an “applicable Federal

7 law” under JAG, and would be a required condition for grantees receiving JAG funds. Section

8 1373(a) provides:

Notwithstanding any other provision of Federal, State, or local law, a Federal, State, or

9

local government entity or official may not prohibit, or in any way restrict, any

10

government entity or official from sending to, or receiving from [federal immigration

enforcement authorities] information regarding the citizenship or immigration status,

11

lawful or unlawful, of any individual.

12

60. Section 1373(b) prohibits any “person or agency” from restricting federal, state, or

13 local government entities from “requesting” information regarding a person’s immigration status,

14 “maintaining” such information, or “exchanging” such information with federal, state, or local

15 government entities.

16

61. For FY 2016, OJP required that the BSCC submit a legal opinion validating its

17 compliance with § 1373. On April 21, 2017, OJP sent a letter to the BSCC, as well as eight other

18 jurisdictions nationwide, demanding that it submit that legal opinion.5 On June 29, 2017, the

19 BSCC submitted the requested legal opinion explaining that the State’s laws, including the

20 TRUST and TRUTH Acts, do not violate § 1373.

21

62. On July 25, 2017, OJP announced the FY 2017 State JAG Solicitation, and on August

22 3, 2017, OJP announced the FY 2017 JAG Local Solicitation. For the first time, the Solicitations

23 required that state and local jurisdictions make the following certifications with respect to § 1373

24 in order to receive a grant or subgrant:

25

• The chief law officer of the jurisdiction, including the California Attorney General in the

26 5 Press Release, U.S. Dep’t of Justice, Department of Justice Sends Letter to Nine
27 Jurisdictions Requiring Proof of Compliance with 8 U.S.C. § 1373 (Apr. 21, 2017), https://www.justice.gov/opa/pr/department-justice-sends-letter-nine-jurisdictions-requiring-proof-
28 compliance-8-usc-1373. 15
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1 case of California, must sign an affidavit certifying compliance with § 1373 on behalf of
2 the State and “any entity, agency, or official” of the State as applicable to the “program or
3 activity” to be funded.
4 • The chief executive officer of the jurisdiction, including the Governor of the State of
5 California, must sign an affidavit making a number of assurances, including that the chief
6 executive adopts the chief law officer’s certification of compliance with § 1373.
7 • The subrecipients must certify compliance with § 1373, as applicable to the program and
8 award to be funded, and assure that they will comply with all award conditions.
9 63. On August 25, 2017, the BSCC submitted the State’s application for JAG. In that
10 application, the BSCC stated that it “withholds any commitment at this time concerning new
11 grant conditions, pending receipt of the award documents.”
12 64. On November 1, 2017, after the enactment of the Values Act, OJP sent the State a
13 preliminary compliance assessment letter asserting that three provisions of the Values Act may
14 “violate 8 U.S.C. § 1373, depending on how [the State] interprets and applies them.” Those are
15 the provisions regulating: (i) inquiries into an individual’s immigration status (Cal. Gov’t Code §
16 7284.6(a)(1)(A)); (ii) responses to notification requests (id. § 7284.6(a)(1)(C)); and (iii) the
17 sharing of “personal information” (id. § 7284.6(a)(1)(D)). As to the first provision, OJP said that
18 to comply with § 1373, the State must certify that it interprets that provision as “not restrict[ing]
19 California officers and employees from requesting information regarding immigration status from
20 federal immigration officers.” For the notification request and personal information provisions to
21 comply with § 1373, OJP said the State must certify that “it interprets and applies these
22 provisions to not restrict California officers from sharing information regarding immigration
23 status with federal immigration officers, including information regarding release date[s] and
24 home address[es].” If the State cannot so “certify,” then “[USDOJ] has determined that these
25 provisions violate [Section 1373].” OJP further “reserve[d] [its] right to identify additional bases
26 of potential violation of 8 U.S.C. § 1373.”
27
28
16
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1

65. On November 13, 2017, the BSCC responded and certified that the Values Act does

2 not restrict law enforcement from inquiring about an individual’s immigration status with other

3 governmental entities. The BSCC could not provide the requested certification as to the other

4 two provisions, and informed OJP that the Values Act regulates the sharing of release date

5 information and home addresses because that information is not covered by § 1373.

6

66. On January 24, 2018, OJP responded that it still has concerns about the State’s

7 compliance with § 1373, and asked the BSCC, and simultaneously, eight other local jurisdictions

8 in California, to produce by February 23, under threat of subpoena, “orders, directives

9 instructions, or guidance to your law enforcement employees” about communicating with

10 USDOJ, the Department of Homeland Security (“DHS”), and ICE.6 The BSCC responded to that

11 letter asserting that it is not a law enforcement agency, so has limited requested documents, but

12 produced the documents that were responsive. In the meantime, the State filed a lawsuit

13 challenging, among other things, the FY 2017 § 1373 Certification Requirement as

14 unconstitutional and unlawful, and seeking a declaration that the State’s laws comply with §

15 1373. Am. Compl. for Decl. and Inj. Relief, State of California v. Sessions, No. 17-cv-4701

16 (N.D. Cal. Oct. 13, 2017), ECF No. 11.

17

67. On March 6, 2018, the United States filed a lawsuit against the State of California in

18 the Eastern District of California alleging that the provisions of SB 54 [the Values Act] that

19 regulate compliance with notification requests, restrict the sharing of personal information for

20 immigration enforcement purposes, and limit transfers of individuals to immigration authorities

21 are preempted under federal immigration law, and that the notification request and personal

22 information provisions also violate § 1373. See Compl., United States v. California, No. 18-cv-

23 490, ECF No. 1, ¶ 65 (E.D. Cal. Mar. 6, 2018). In its motion to preliminarily enjoin SB 54, the

24 United States argued that these provisions “impede[]” the United States’ enforcement of the

25

26 6 Press Release, U.S. Dep’t of Justice, Justice Department Demands Documents and
27 Threatens to Subpoena 23 Jurisdictions As Part of 8 U.S.C. § 1373 Compliance Review (Jan. 24, 2018), https://www.justice.gov/opa/pr/justice-department-demands-documents-and-threatens-
28 subpoena-23-jurisdictions-part-8-usc-1373. 17
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1 immigration laws. Pl.’s Mot. for Prelim. Inj. and Mem. of Law in Supp., United States v.

2 California, No. 18-cv-490, ECF No. 2-1 at 4, 27, 29, 32, 35, 37 (E.D. Cal. Mar. 6, 2018).

3

68. The Eastern District court disagreed. In denying the federal government’s motion to

4 enjoin the Values Act, Judge Mendez concluded that § 1373 does not encompass addresses and

5 release dates, “Section 1373 and the information sharing provisions of SB 54 do not directly

6 conflict,” and SB 54 was not an obstacle to the federal government’s goals because “[s]tanding

7 aside does not equate to standing in the way.” United States v. California, No. 18-cv-490, --- F.

8 Supp. 3d ---, 2018 WL 3301414, at *15-18 (E.D. Cal. July 5, 2018), appeal docketed, No. 18-

9 16496 (9th Cir. Aug. 9, 2018). The court found the constitutionality of § 1373 “highly suspect,”

10 id. at *14, and “that a Congressional mandate prohibiting states from restricting their law

11 enforcement agencies’ involvement in immigration enforcement activities—apart from, perhaps a

12 narrowly drawn information sharing provision—would likely violate the Tenth Amendment . . . .

13 If Congress lacks the authority to direct state action in this manner, then preemption cannot and

14 should not be used to achieve the same result.” Id. at *21. The court further dismissed the United

15 States’ claim against the Values Act without leave to amend. Order re: State of California’s Mot.

16 to Dismiss, United States v. California, No. 18-cv-490, ECF No. 197 at 5, 7 (E.D. Cal. July 9,

17 2018).

18

69. Two other federal courts, when considering challenges to the FY 2017 § 1373 JAG

19 Condition, declared § 1373 unconstitutional on its face, and thus, held that the statute cannot be

20 an “applicable federal law” for JAG funding. Chicago, 2018 WL 3608564, at *7-11;

21 Philadelphia, 309 F. Supp. 3d at 329-31.

22

70. Nonetheless, in June 2018, when Defendants issued FY 2017 JAG awards to state and

23 local jurisdictions, Defendants withheld awards from the BSCC and local jurisdictions throughout

24 California because of Defendants’ view that the Values Act does not comply with § 1373. As of

25 the date of this Complaint, Plaintiff is not aware of any jurisdiction in California that has received

26 FY 2017 JAG funds.

27

28 18
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1

B. The Addition of the Access and Notification Requirements to JAG Funding

2

71. In addition to the requirement that jurisdictions certify compliance with § 1373, for

3 the first time in FY 2017, OJP announced two substantive “special conditions” related to federal

4 immigration enforcement. To receive a JAG award, a jurisdiction must:

5

• permit personnel of DHS to access any correctional or detention facility in order to meet

6

with an “alien” (or an individual believed to be an “alien”) and inquire as to his or her

7

right to be or remain in the United States (the “Access Condition”); and

8

• provide at least 48 hours’ advance notice to DHS regarding the scheduled release date and

9

time of an “alien” in the jurisdiction’s custody when DHS requests such notice in order to

10

take custody of the individual pursuant to the INA (the “Notification Condition”).

11 Defendants later identified what the final award conditions would consist of in court filings,

12 which confirmed the imposition of the Access and Notification Conditions for FY 2017 JAG

13 funding. See, e.g., State of California v. Sessions, No. 17-cv-4701, ECF No. 125-2, ¶ 55(1) (July

14 31, 2018).

15

72. Paragraph 56 of the represented final conditions impose similar obligations on local

16 government recipients and subrecipients. Recipients that disburse funding to subrecipients must

17 “monitor[] subrecipient compliance with the requirements of this condition.” Id. ¶ 55(2).

18

73. Two federal district courts have determined that the Access and Notification

19 Conditions are unconstitutional because USDOJ exceeded its statutory authority in imposing

20 them. Chicago, 2018 WL 3608564, at *12; Philadelphia, 309 F. Supp. 3d at 321. The Seventh 21 Circuit affirmed the district court’s decision to preliminarily enjoin the Access and Notification 22 Conditions. Chicago, 888 F.3d. at 293 (7th Cir. 2018). California is currently challenging the FY 23 2017 Access and Notification Conditions, as well as the § 1373 Condition, in California v. 24 Sessions.

25

C. FY 2018 JAG State and Local Solicitations

26

74. On July 20, 2018, Defendants released the FY 2018 JAG Solicitations. The Chief

27 Legal Officer of the jurisdiction must execute two certifications in order for that jurisdiction to

28 receive JAG funding. The first certification is entitled “FY 2018 Certification of Compliance 19

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1 with 8 U.S.C. §§ 1373 & 1644.” As with FY 2017, the first certification requires each grant

2 recipient’s Chief Legal Officer to sign a standard affidavit, affirming compliance with § 1373 on

3 behalf of the State and “any entity, agency, or official” of the State as applicable to the “program

4 or activity to be funded.” Ex. A, Appx B; Ex. B, App. B. Unlike last year, applicants must also

5 submit an answer to the following questions surrounding the jurisdiction’s “Communication with

6 the Department of Homeland Security (DHS) and/or Immigration and Customs Enforcement

7 (ICE)”:

8

• Does your jurisdiction have any laws, policies, or practices related to whether, when, or

9

how employees may communicate with DHS or ICE?

10

• Is your jurisdiction subject to any laws from a superior political entity (e.g., a state law

11

that binds a city) that meets the description in question 1?

12

• If yes to either:

13

o Please provide a copy of each law or policy.

14

o Please describe each practice.

15

o Please explain how the law, policy, or practice complies with section 1373.

16 Ex. A at 27-28; Ex. B at 27-28. A jurisdiction will “not receive award funds (and its award will

17 include a condition that withholds funds) until it submits these responses.” Ex. A at 28; Ex. B at

18 28.7

19

75. In this first certification, for the first time this year, the Chief Legal Officer must

20 certify compliance with 8 U.S.C. § 1644. Ex. A, Appx B; Ex. B, Appx. B. Section 1644 exists in

21 a chapter within the INA for “Restricting Welfare and Public Benefits for Aliens.” Like § 1373, §

22 1644 prohibits state and local governments from restricting the “sending to or receiving” from

23 immigration authorities “information regarding the immigration status” of “an alien.”

24

76. Also, for the first time this year, Defendants require that the Chief Legal Officer

25 separately execute a second certification entitled “FY 2018 Certification Relating to 8 U.S.C. §§

26 1226(a) & (c), 1231(a)(4), 1324(a), 1357(a), & 1366(1) & (3).” While removing the Access

27 7 For purposes of this action, these required responses are part of the Certification
28 Requirements that California is challenging. 20
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1 Condition that has been struck down by the courts, Defendants add a requirement that the Chief

2 Legal Officer certify that the jurisdiction does not have in effect or is bound to any law, rule,

3 policy, or practice, applicable to the “program or activity” to be funded, which “impede the

4 exercise by federal officers of authority under 8 U.S.C. § 1357(a).” Ex. A, Appx. C; Ex. B,

5 Appx. C. The certification describes § 1357(a) as providing authority to immigration officers to

6 “interrogate any alien or person believed to be an alien as to his right to be or to remain in the

7 United States.” Id. The JAG Solicitations describe the certification as “requiring . . . recipients to

8 permit DHS agents to have access to any correctional facility in order to meet with an alien (or an

9 individual believed to be an alien) and inquire as to his right to be or remain in the United States.”

10 Ex. A at 37; Ex. B at 37.

11

77. While removing the Notification Condition that has been struck down by the courts,

12 in this second certification, Defendants add a requirement that the Chief Legal Officer certify that

13 the jurisdiction does not have in effect or is bound to any law, rule, policy, or practice, applicable

14 to the “program or activity” to be funded, which “impede[s] the exercise by federal officers of

15 authority relating to 8 U.S.C. § 1226(a) & (c).” Ex. A, Appx. C; Ex. B, Appx. C. Section 1226

16 directs the Attorney General to take custody of inadmissible and deportable persons after they

17 have committed certain offenses or have been sentenced to a term of imprisonment. The

18 certification also identifies 8 U.S.C. § 1231(a)(4), which the certification represents as limiting

19 the federal government from “remov[ing] an alien who is sentenced to imprisonment until the

20 alien is released from imprisonment.” Id. The JAG Solicitations describe the certification as

21 “requiring . . . recipients to provide (where feasible) at least 48 hours’ advance notice to DHS

22 regarding the scheduled release date and time of an alien in the recipient’s custody when DHS

23 requests such notice in order to take custody of the alien pursuant to the Immigration and

24 Nationality Act.” Ex. A at 37; Ex. B at 36-37.8

25

78. That second certification requires that the Chief Legal Officer certify for the first time

26 that the jurisdiction does not have in effect or is bound to any law, rule, policy, or practice,

27

8 The JAG Solicitations identify “8 U.S.C. § 1266(a) & (c)” on this page, but since that

law does not exist, and does not appear anywhere else in the Solicitations, California presumes 28 that Defendants meant to cite to 8 U.S.C. § 1226 here instead.

21

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1 applicable to the “program or activity” to be funded,” which “impede[s] the exercise by federal

2 officers of authority relating to 8 U.S.C. § 1366(1) & (3).” Ex. A, Appx. C; Ex. B, Appx. C. The

3 8 U.S.C. § 1366 certification requirement is not described anywhere else in the JAG Solicitations,

4 and Defendants do not explain why they are adding this statute as an “applicable law.” The

5 Certification describes § 1366 as “requiring the Attorney General annually to submit to Congress

6 ‘a report detailing . . . (1) the number of illegal aliens incarcerated in Federal and State prisons for

7 having committed felonies, stating the number incarcerated for each type of offense, [and] (3)

8 programs and plans underway in the Department of Justice to ensure the prompt removal from the

9 United States of criminal aliens subject to removal.’” Id.

10

79. That second certification also requires that the Chief Legal Officer certify that the

11 jurisdiction does not have in effect or is bound to any law, rule, policy, or practice, applicable to

12 the “program or activity” to be funded, which “violate[s], or aid[s] or abets any violation of, 8

13 U.S.C. § 1324(a).” Ex. A, Appx. C; Ex. B, Appx. C. The certification describes § 1324(a) as

14 “forbidding any ‘person,’ in ‘knowing or in reckless disregard of the fact that an alien has come

15 to, entered, or remains in the United States in violation of law,’ to ‘conceal[], harbor[], or shield[]

16 from detection, or attempt[] to conceal, harbor, or shield from detection, such alien in any place,

17 including any building or any means of transportation’ or to ‘engage in any conspiracy to commit

18 any of the preceding acts . . . or aid[] or abet[] the commission of any of the preceding acts.’” Id.

19

80. 8 U.S.C. § 1324(a) does not apply to states. The INA defines “person” as an

20 “individual” or an “organization.” 8 U.S.C. § 1101(b)(3). A “State” is defined separately in 8

21 U.S.C. § 1101(a)(36), and the term “State” is not in any way part of 8 U.S.C. § 1324(a).

22

81. The Chief Executive of the Applicant Government, identified as the Governor for

23 states, must execute a separate certification acknowledging that the Chief Executive examined the

24 Certification of Compliance with 8 U.S.C. § 1373 & 1644 and the Certification Relating to 8

25 U.S.C. §§ 1226(a) & (c), 1231(a)(4), 1324(a), 1357(a), & 1366(1) & (3), and “adopt th[e]

26 certification[s] as my own on behalf of that government.” Ex. A, Appx A; Ex. B, Appx. A.

27

82. The Chief Legal Officer and the Chief Executive must make the following

28 acknowledgement in connection with the certifications for each of these laws: 22
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1

I acknowledge that a materially false, fictitious, or fraudulent statement (or concealment or

2

omission of a material fact) in this certification, or in the application that it supports, may be

3

the subject of criminal prosecution (including under 18 U.S.C. §§ 1001 and/or 1621, and or 34

U.S.C. § 10271-10273), and also may subject me and the applicant [entity] to civil penalties

4

and administrative remedies for false claims or otherwise (including under 31 U.S.C. §§

3729-3730 and §§ 3801-3812).

5

Ex. A, Appx A-C; Ex. B, Appx. A-C.

6 83. The JAG State Solicitation provides that “in order to validly accept a fiscal year (FY)

7 2018 JAG award, the chief legal officer of the applicant state must properly execute, and the state

8 must submit, the specific certifications regarding compliance with certain federal laws attached to

9 this solicitation as Appendix B and Appendix C.” Ex. A at 1, 18, 27, 35-36. The same applies to

10 local governments. Ex. B at 1, 18, 27, 35. The State is required to collect these certifications

11 from all subrecipients. Ex. A at 24.

12 84. Underneath the FY 2018 JAG Solicitations on the OJP website, there is a link to

13 Frequently Asked Questions with respect to the § 1373 Certification.9 These represent that the

14 certification “must be signed by the jurisdiction’s chief legal officer, who may not delegate,

15 assign, or designate the task to another.”10 The document states that the “State ‘Attorney

16 General’ typically will be the title of the chief legal officer.” Id. No. 9.

17 85. OJP anticipates that it will issue award notifications by September 30, 2018. Ex. A at

18 35; Ex. B at 35. The USDOJ Financial Guide explains that jurisdictions “have 45 days from the

19 award date to accept [an] OJP . . . award document or the award may be rescinded.”11

20 86. Defendants have provided no explanation as to how the new Certification

21 Requirements are consistent with Congress’s intent in adopting and authorizing funds for JAG.

22 87. On August 21, 2018, the BSCC submitted a FY 2018 JAG application. As part of

23 that application, the BSCC is required to certify compliance that “the Applicant will comply with

24

25

9 See Office of Justice Programs, BJA Edward Byrne Memorial Justice Assistance Grant

Program, https://www.bja.gov/jag/.

26

10 Bureau of Justice Assistance, Questions & Answers related to 8 U.S.C. § 1373 and new

express conditions on Department of Homeland Security Access and Notice Requirements, No. 8, 27 https://www.bja.gov/publications/8U.S.C.1373QuestionsandAnswers.pdf.

11 U.S. Dep’t of Justice, 2015 DOJ Grants Financial Guide, § 2.2, 28 https://www.justice.gov/ovw/file/892031/download.

23

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1 . . . all federal statutes and regulations applicable to the award” and that it will “require all

2 subrecipients to comply with all applicable award requirements and all applicable federal statutes

3 and regulations.” OJP informed the BSCC that it had to make that certification at the time of

4 application. In a supplemental document, the BSCC stated that it would so certify as to any laws

5 that were lawfully identified as applicable laws. But the BSCC disavowed the inclusion of the

6 new Certification Requirements, and asserted that it was not making any “certifications or

7 assurances about any federal statutes that have been selected by the Office of Justice Programs

8 (OJP) as ‘applicable’ to the JAG program and imposed unlawfully.” The BSCC continued that it

9 “does not agree to comply with any other unlawfully imposed award conditions or requirements.”

10 V. THE CERTIFICATION REQUIREMENTS ARE UNCONSTITUTIONAL AND UNLAWFUL

11

A. Defendants Lack Statutory Authority to Impose the Certification

Requirements 12

88. JAG’s authorizing statute provides no authority for OJP to impose the Certification

13

Requirements. Interpreting OJP’s authority to permit it to impose these substantive conditions

14

with respect to formula grants, like JAG, beyond what is allowed under federal law conflicts with

15

congressional intent in establishing a prescribed formula grant structure. Congress designed JAG

16

so that “each State” receives an allocation according to a precise statutory formula. 34 U.S.C. §

17

10156(a) (emphasis added). Likewise, Congress’s formula provides allocation to “each unit of

18

local government.” Id. § 10156(d)(2) (emphasis added). As such, if USDOJ makes grants from

19

funds that Congress appropriated to JAG, OJP must disburse the funds according to the statutory

20

formula enacted by Congress so long as the jurisdiction complies with the conditions that exist in

21

federal law.

22

89. The Certification Requirements are also contrary to congressional intent as

23

immigration enforcement has never been a purpose area for JAG funding, and Congress has

24

repeatedly rejected numerous attempts to attach immigration enforcement requirements to receipt

25

of JAG funding.

26

90. Defendants claim that all of the statutes identified in the certification are “applicable

27

Federal laws” that applicants must comply with under 34 U.S.C. § 10153(a)(5) in the JAG

28

24

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1 authorizing statute. See Ex. A at 10; Ex. B. at 10. The JAG authorizing statute does not permit

2 Defendants to add these statutes as “applicable Federal laws.”

3

91. 8 U.S.C. §§ 1373 and 1644 cannot be “applicable Federal laws” because they are

4 unconstitutional under the Tenth Amendment’s anti-commandeering doctrine, and thus,

5 Defendants lack the statutory authority to identify those statutes as “applicable laws.”

6

92. 8 U.S.C. §§ 1226, 1231, 1357, and 1366 are not “applicable Federal laws” as they are

7 not laws that are applicable to applicant state and local jurisdictions. These laws only impose

8 obligations on the federal government. In addition, 8 U.S.C. § 1324 only applies to individuals

9 and organizations, not to state and local jurisdictions.

10

93. None of the federal laws identified in the certifications are “applicable” because the

11 term “other applicable Federal laws” is best understood as referring to laws that are expressly

12 connected to federal grant-making. Prior to 2016, the only laws that USDOJ identified as

13 “applicable” were those that specifically address the administration of federal funding in the text

14 of the statute. There is no provision in the INA, or any federal law, that requires jurisdictions to

15 assist with otherwise voluntary immigration enforcement related activities in order to receive

16 these federal funds.

17

94. Defendants exceed their statutory authority by adding the Certification Requirements

18 because these purported “applicable Federal laws” cannot be constitutionally applied to

19 California’s laws under the anti-commandeering doctrine. Defendants exceed their statutory

20 authority by interpreting statutes such as 8 U.S.C. §§ 1226, 1231, and 1357(a), as requiring state

21 and local jurisdictions to comply with notification requests or allowing immigration authorities

22 access to detention facilities, although those statutes impose no requirements on state and local

23 jurisdictions. See Ex. A at 37; Ex. B at 36-37.

24

95. These Certification Requirements are further undercut by 34 U.S.C. § 10228(a),

25 which is codified in the same chapter as the JAG authorizing statute, and prohibits the use of

26 federal law enforcement grants to exercise “any direction, supervision, or control over any police

27 force or any other criminal justice agency of any State or any political subdivision thereof.”

28 25
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1

B. The Certification Requirements do not Provide Jurisdictions with Clear

Notice of what they Require

2 96. It is ambiguous what the Certification Requirements mandate or prohibit grant

3 recipients from doing. For example, it is unclear what activities Defendants perceive as

4 “impeding” federal immigration officials. Federal law does not prohibit state and local

5 jurisdictions from limiting their law enforcement officers from engaging in immigration

6 enforcement. However, the federal government, in another litigation, has staked its position that

7 it views such practices as “impeding” immigration officials. It is, therefore, uncertain what

8 actions that jurisdictions must take in order to satisfy the federal government’s view of these

9 requirements, when there is no federal law that broadly prohibits jurisdictions from “impeding”

10 immigration officials. It is just as unclear what Defendants consider to be “aid[ing] or abet[ing]”

11 a violation of 8 U.S.C. § 1324(a).

12 97. It is ambiguous whether the requirement to certify that grant recipients “permit DHS

13 agents to have access to any correctional facility in order to meet with an alien . . . and inquire as

14 to his right to be or remain in the United States” prohibits grant recipients from informing inmates

15 of their right to have a lawyer present or decline an interview with ICE, which would implicate

16 the notice requirements in the TRUTH Act. It is also ambiguous as to whether the Certification

17 Requirements prohibit jurisdictions from restricting their employees from asking a person about

18 his or her immigration status, or complying with requests to hold a person after his or her

19 ordinary release, activities which are both generally prohibited under the Values Act.

20

C. Interpreting the Certification Requirements as Requiring Jurisdictions to

21

Hold an Individual Past His or Her Ordinary Release would mean

Defendants are Conditioning Funding on Unconstitutional Activities

22 98. If Defendants interpret the ambiguous Certification Requirements as requiring

23 jurisdictions to hold an individual beyond his or her scheduled release date and time in order to

24 comply, Defendants would be forcing jurisdictions to violate the Fourth Amendment of the U.S.

25 Constitution in order to receive federal funding. That is because jurisdictions would be required

26 to detain individuals beyond when they would otherwise be eligible for release even if a

27 jurisdiction lacks the probable cause to do so.

28

26

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1

99. As a matter of practice, when issuing a I-247A detainer form to a local jurisdiction,

2 ICE merely checks a box identifying whether: (a) there is a final order of removal; (b) removal

3 proceedings are pending as to the individual; (c) “[b]iometric confirmation of the alien’s identity

4 and a records check of federal databases that affirmatively indicate, by themselves or in addition

5 to other reliable information, that the alien either lacks immigration status or notwithstanding

6 such status is removable under U.S. immigration law;” and/or (d) “[s]tatements made by the alien

7 to an immigration officer and/or reliable evidence that affirmatively indicate that the alien either

8 lacks immigration status or notwithstanding such status is removable under U.S. immigration

9 law.”12

10

100. The I-247A form alone does not provide a jurisdiction with any individually

11 particularized information about the alleged basis for removability. Detainer requests are

12 typically only accompanied by an ICE administrative warrant, which has not been reviewed and

13 approved by a neutral magistrate. As federal courts throughout the country have determined,

14 jurisdictions that hold individuals beyond their ordinary release date pursuant to ICE detainer

15 requests violate the Fourth Amendment if the detainer requests are not supported by independent

16 probable cause or a judicial warrant. See, e.g., Roy v. Cty. of L.A., No. 12-cv-9012, 2018 WL

17 914773, *23-24 (C.D. Cal. Feb. 7, 2018); Cty. of Santa Clara v. Trump, 250 F. Supp. 3d 497,

18 510-11 (N.D. Cal. 2017).

19

101. It is unclear whether Defendants consider jurisdictions that limit compliance with

20 detainer requests as “imped[ing]” immigration officials. To cure this ambiguity and the Fourth

21 Amendment problems with the Certification Requirements, Defendants would need to explicitly

22 state that jurisdictions do not need to detain an individual beyond his or her ordinary release in

23 order to comply with the Certification Requirements.

24 VI. THE IMPOSITION OF THE CERTIFICATION REQUIREMENTS CREATE IRREPARABLE HARM TO THE STATE AND ITS LOCAL JURISDICTIONS
25 102. These Certification Requirements mean that the State and its local jurisdictions will
26 have to decide whether they can or should accept their JAG awards under these ambiguous and
27 12 See Department of Homeland Security, Immigration Detainer – Notice of Action, Form
28 I-247A, https://www.ice.gov/sites/default/files/documents/Document/2017/I-247A.pdf.
27
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 29 of 153

1 unlawful requirements. If the State and its local jurisdictions cannot accept the awards, the State

2 will lose $28.9 million in critical funds that would otherwise go toward programs throughout the

3 State that reduce recidivism for at-risk youth, counter the distribution of illegal drugs, advance

4 community policing, and improve educational outcomes.

5

103. It is likely that in order for the State and many of its localities to accept the funding,

6 they will have to change their public safety oriented laws and policies in order to ensure they are

7 viewed as complying with these ambiguous Certification Requirements. Abandoning these

8 policies that law enforcement has found to be effective in their communities would divert

9 resources away from fighting crime and erode trust between the State and local governments and

10 their immigrant communities that the TRUST, TRUTH, and Values Acts, as well as local

11 ordinances, are intended to build.

12

104. By their actions, Defendants are compelling state and local governments to make a

13 decision about whether to modify or abandon public safety policies or forego federal funding

14 without providing clarity about the scope of the conditions. This forces jurisdictions to sign an

15 unqualified certification within 45 days of receiving final award conditions despite the

16 ambiguities the Defendants have created. California and its local jurisdictions must make this

17 decision under the shadow of the federal government’s actions that they have already taken and

18 threats they have made against California on the basis of the State’s laws. In addition to suing the

19 State for adopting laws that the United States alleges “impede” immigration authorities, after the

20 Values Act went into effect, then-ICE Acting Director Thomas Homan called for USDOJ to

21 “charge” elected officials for jurisdictions with policies like California for violating 8 U.S.C. § 22 1324(a) if they do not meet the Administration’s immigration enforcement demands.13 The DHS

23 Secretary Kirstjen Nielsen later confirmed in congressional testimony that USDOJ was

24 “reviewing” ways to charge state and local official as Acting Director Homan suggested. By

25 trying to make § 1324(a) an “applicable Federal law” through this Certification Requirement,

26 13 Fox News Interview with Thomas Homan, Acting ICE director: California made a
27 foolish decision (Jan. 2, 2018), http://www.foxnews.com/transcript/2018/01/02/acting-icedirector-california-made-foolish-decision.html.
28
28
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 30 of 153

1 Defendants are unlawfully attempting to force elected officials to make representations, under the

2 threat of criminal prosecutions, about that federal statute.

3

105. The State should not be faced with this Hobson’s Choice of agreeing to these

4 unconstitutional Certification Requirements and facing a certain enforcement action, or not

5 agreeing to these Certification Requirements and losing critical public safety dollars to the

6 detriment of the State’s communities. Defendants’ scheme undermines public safety, is

7 unconstitutional, and should be halted.

8

FIRST CLAIM FOR RELIEF

9

VIOLATION OF CONSTITUTIONAL SEPARATION OF POWERS

10

106. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

11

107. Article I, Section I of the United States Constitution enumerates that “[a]ll legislative

12 Powers herein granted shall be vested in [the] Congress.”

13

108. Article I, Section VIII of the United States Constitution vests exclusively in Congress

14 the spending power to “provide for . . . the General Welfare of the United States.”

15

109. Defendants have exceeded congressional authority by adding substantive

16 Certification Requirements that are not conferred by the JAG authorizing statute or any other

17 federal law. See 34 U.S.C. §§ 10151-58. The new Certification Requirements therefore

18 unlawfully exceed the Executive Branch’s powers and intrude upon the powers of Congress.

19

110. For the reasons stated herein, the Certification Requirements in the JAG Solicitations

20 are unlawful, unconstitutional, and should be set aside under 28 U.S.C. § 2201. Additionally,

21 Plaintiff is entitled to a writ of mandamus under 28 U.S.C. § 1361 to compel Defendants to issue

22 California’s FY 2018 JAG award without the Certification Requirements, and disbursal of

23 California’s FY 2018 JAG funds, in accordance with the formula in the JAG authorizing statute.

24

SECOND CLAIM FOR RELIEF

25

ULTRA VIRES

26

(The Laws in the Certification Requirements are not “Applicable Federal Laws” within the Meaning of the JAG Authorizing Statute)

27

111. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

28 29

Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 31 of 153

1

112. An agency acts ultra vires when it exceeds its statutory authority conferred by

2 Congress.

3

113. None of the identified laws in the Certification Requirements are “applicable Federal

4 laws” within the meaning of the JAG authorizing statute because they do not govern by their

5 express terms the administration of federal funding.

6

114. Additionally, 8 U.S.C. §§ 1226, 1231, 1324, and 1366 cannot be applicable laws for

7 applicants to JAG funding because these laws impose no obligations on state and local

8 jurisdictions.

9

115. Alternatively, even if these statutes were deemed to be “applicable Federal laws,”

10 Defendants exceed their authority under the JAG authorizing statute by imposing requirements on

11 state and local governments that are not found in these federal statutes. For example, Defendants

12 seek to “require[] . . . recipients to provide (where feasible) at least 48 hours’ notice to DHS

13 regarding the scheduled release date and time of an alien in the recipient’s custody when DHS

14 requests such notice in order to take custody of the alien pursuant to the Immigration and

15 Nationality Act,” although there is no such requirement in federal law. Similarly, Defendants

16 “requir[e] . . . recipients to permit DHS agents to have access to any correctional facility in order

17 to meet with an alien (or an individual believed to be an alien) and inquire as to his right to be or

18 remain in the United States,” which again is not a requirement that exists in federal law.

19

116. For the reasons stated herein, the Certification Requirements in the JAG Solicitations

20 are ultra vires, and should be set aside under 28 U.S.C. § 2201. Additionally, Plaintiff is entitled

21 to a writ of mandamus under 28 U.S.C. § 1361 to compel Defendants to issue California’s FY

22 2018 JAG award without the Certification Requirements, and disbursal of California’s FY 2018

23 JAG funds, in accordance with the formula in the JAG authorizing statute.

24

THIRD CLAIM FOR RELIEF

25

ULTRA VIRES/ANTI-COMMANDEERING

26

(The Certification Requirements Cannot be Constitutionally Applied to California’s Laws under the Tenth Amendment of the Constitution)

27

117. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

28 30

Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 32 of 153

1

118. Defendants’ basis for adding the Certification Requirements are that they are

2 premised on being “applicable Federal laws.” If the laws identified in the Certification

3 Requirements are “applicable Federal laws,” then the breadth of what Congress permitted

4 Defendants to condition funding on is confined to what the “applicable laws” require or prohibit,

5 as limited by the Tenth Amendment, and nothing more.

6

119. The Tenth Amendment prohibits the federal government from requiring states and

7 localities “to govern according to Congress’s instructions,” New York v. United States, 505 U.S.

8 144, 162 (1992), or “command[ing] the State’s officers . . . to administer or enforce a federal

9 regulatory program.” Printz v. United States, 521 U.S. 898, 935 (1997). Specifically, where the

10 “whole object” of a provision of a federal statute is to “direct the functioning” of state and local

11 governments, that provision is unconstitutional. Id. at 932.

12

120. The Tenth Amendment guarantees that states have a “legitimate choice” to “decline

13 to administer the federal program.” New York, 505 U.S. at 177, 185. Prohibitions that

14 “unequivocally dictate[] what a state legislature may and may not do” violate the anti-

15 commandeering doctrine as much as affirmative commands. Murphy v. NCAA, 138 S. Ct. 1461,

16 1478 (2018).

17

121. Two of the laws that are part of the Certification Requirements, 8 U.S.C. §§ 1373 and

18 1644, violate the Tenth Amendment on their face or as applied under Defendants’ interpretation

19 of them. Therefore, those laws are invalid and cannot be identified as “applicable Federal laws.”

20 See Chicago, 2018 WL 3608564, at 7-11; Philadelphia, 309 F. Supp. 3d at 329-31.

21

122. In United States v. California, the United States has already made clear its view that

22 the Values and TRUST Acts “impede” immigration authorities, which would run afoul of the

23 Certification Requirements. As was found in that case, an interpretation of federal law that

24 “prohibit[s] states from restricting their law enforcement agencies’ involvement in immigration

25 activities—apart from, perhaps, a narrowly drawn information sharing provision—would likely

26 violate the Tenth Amendment.” California, 2018 WL 3301414, at *21.

27

123. Pursuant to 28 U.S.C. § 2201, Plaintiff is entitled to a declaration that Defendants do

28 not possess the statutory authority to apply the Certification Requirements as to the TRUST, 31
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 33 of 153

1 TRUTH, and Values Acts, as to do so, Defendants would be applying federal law in a manner

2 that violates the Tenth Amendment of the Constitution. Defendants’ statutory authority to use

3 funding conditions to commandeer the State is also limited by 34 U.S.C. § 10228(a), which

4 prohibits the use of federal law enforcement grants to exercise “any direction, supervision, or

5 control over any police force or any other criminal justice agency.”

6

124. For the reasons stated herein, the Certification Requirements in the JAG Solicitations

7 are ultra vires, and should be set aside, or alternatively, should be set aside as to California and its

8 local jurisdictions. Additionally, Plaintiff is entitled to a writ of mandamus under 28 U.S.C. §

9 1361 to compel Defendants to issue California’s FY 2018 JAG award without the Certification

10 Requirements, and disbursal of California’s FY 2018 JAG funds, in accordance with the formula

11 in the JAG authorizing statute.

12

FOURTH CLAIM FOR RELIEF

13

SPENDING CLAUSE

14

125. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

15

126. Congress’ spending power is not unlimited. When “Congress desires to condition the

16 States’ receipt of federal funds,” it must do so (a) “unambiguously . . ., enabl[ing] the States to

17 exercise their choice knowingly, cognizant of the consequences of their participation;” (b) by

18 placing conditions that are related “to the federal interest in particular national projects or

19 programs;” and (c) to not “induce the States to engage in activities that would themselves be

20 unconstitutional.” South Dakota v. Dole, 483 U.S. 203, 207 (1987) (citation omitted).

21

127. To the extent that Congress delegated its authority to impose conditions on JAG

22 funding (which Plaintiff does not concede), the Certification Requirements violate the Spending

23 Clause of the U.S. Constitution.

24

128. The Certification Requirements are unrelated to the “federal interest in particular

25 national projects or programs” for which Congress intended JAG funding to be used.

26

129. The Certification Requirements violate the Spending Clause because they are

27 ambiguous and do not provide the State with notice to make a “choice knowingly” of whether to

28 comply.

32
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 34 of 153

1

130. Additionally, if the Certification Requirements mandate that jurisdictions hold (or not

2 prohibit the holding of) individuals beyond their ordinary release, that requirement would also

3 violate the independent constitutional bar prong of the Spending Clause by requiring law

4 enforcement to comply even when doing so would violate the Fourth Amendment of the U.S.

5 Constitution.

6

131. For the reasons stated herein, the Certification Requirements in the JAG Solicitation

7 are unlawful, and should be set aside under 28 U.S.C. § 2201. Additionally, Plaintiff is entitled to

8 a writ of mandamus under 28 U.S.C. § 1361 to compel Defendants to issue California’s FY 2018

9 JAG award without the Certification Requirements, and disbursal of California’s FY 2018 JAG

10 funds, in accordance with the formula in the JAG authorizing statute.

11

FIFTH CLAIM FOR RELIEF

12

VIOLATION OF ADMINISTRATIVE PROCEDURE ACT

13

(Constitutional Violations and Excess of Statutory Authority)

132. Plaintiff incorporates the allegations of the preceding paragraphs by reference. 14

133. Defendant USDOJ is an “agency” under the APA, 5 U.S.C. § 551(1), and the JAG 15

Solicitations are “agency action[s]” under the APA, id. § 551(13). 16

134. The JAG Solicitations constitute “[a]gency action[s] made reviewable by statute and 17

final agency action for which there is no other adequate remedy in a court.” Id. § 704. 18

135. The APA requires that a court “hold unlawful and set aside agency action, findings, 19

and conclusions found to be . . . contrary to constitutional right, power, privilege, or immunity,” 20

or “in excess of statutory jurisdiction, authority, or limitations, or short of statutory right.” Id. § 21

706(2)(B)-(C). 22

136. Defendants’ imposition of the Certification Requirements in the JAG Solicitations is 23

unconstitutional because Defendants overstepped their powers by exercising lawmaking authority 24

that is solely reserved to Congress under Article I, Section I of the U.S. Constitution. Also, 25

Defendants’ imposition of the Certification Requirements was ultra vires in excess of their 26

statutory authority. Furthermore, the Certification Requirements violate the Spending Clause 27

28 33
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 35 of 153

1 because they are unrelated to the federal purpose of the grant, ambiguous, and/or tied to

2 unconstitutional activities.

3

137. Because Defendants acted unconstitutionally and in excess of their statutory authority

4 through the JAG Solicitations, these actions are unlawful and should be set aside under 5 U.S.C. §

5 706. Additionally, Plaintiff is entitled to a writ of mandamus under 28 U.S.C. § 1361 to compel

6 Defendants to issue California’s FY 2018 JAG award without the Certification Requirements, and

7 disbursal of California’s FY 2018 JAG funds, in accordance with the formula in the JAG

8 authorizing statute.

9

SIXTH CLAIM FOR RELIEF

10

VIOLATION OF ADMINISTRATIVE PROCEDURE ACT

11

(Arbitrary and Capricious)

138. Plaintiff incorporates the allegations of the preceding paragraphs by reference. 12

139. Defendant USDOJ is an “agency” under the APA, 5 U.S.C. § 551(1), and the JAG 13

Solicitations are “agency action[s]” under the APA, id. § 551(13). 14

140. The JAG Solicitations constitute “[a]gency action[s] made reviewable by statute and 15

final agency action for which there is no other adequate remedy in a court.” Id. § 704. 16

141. The APA requires that a court “hold unlawful and set aside agency action, findings, 17

and conclusions found to be . . . arbitrary, capricious, an abuse of discretion, or otherwise not in 18

accordance with law.” Id. § 706(2)(A). 19

142. The imposition of the Certification Requirements is arbitrary and capricious and an 20

abuse of discretion because Defendants have relied on factors that Congress did not intend, failed 21

to consider an important aspect of the program the agency is addressing, and has offered no 22

explanation for adding the Certification Requirements that is consistent with the evidence that is 23

before the agency. See Motor Vehicle Mfrs. Ass’n of the U.S. v. State Farm Mut. Auto Ins. Co., 24

463 U.S. 29, 43 (1983). 25

143. For the reasons discussed herein, the Certification Requirements in the JAG 26

Solicitations are unlawful and should be set aside under 5 U.S.C. § 706 for being arbitrary and 27

capricious and an abuse of discretion. Additionally, Plaintiff is entitled to a writ of mandamus 28

34

Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 36 of 153

1 under 28 U.S.C. § 1361 to compel Defendants to issue California’s FY 2018 JAG award without

2 the Certification Requirements, and disbursal of California’s FY 2018 JAG funds, in accordance

3 with the formula in the JAG authorizing statute.

4

PRAYER FOR RELIEF

5

WHEREFORE, Plaintiff, the State of California, respectfully requests that this Court enter

6 judgment in its favor, and grant the following relief:

7

1. Issue a declaration that the Certification Requirements in the JAG Solicitations are

8 unconstitutional and/or unlawful because: (a) they violate the separation of powers; (b) they

9 exceed congressional authority conferred to the Executive Branch and are ultra vires on their face

10 and as applied to the TRUST, TRUTH, and Values Acts; (c) to the extent there is congressional

11 authority, they exceed Congress’s spending powers under Article I of the Constitution; and/or (d)

12 they violate the Administrative Procedure Act;

13

2. Permanently enjoin Defendants from using the Certification Requirements for FY

14 2018 JAG funding;

15

3. Permanently enjoin Defendants from withholding, terminating, disbarring, or making

16 any state entity or local jurisdiction ineligible for JAG funding on account of the TRUST,

17 TRUTH, and Values Acts;

18

4. Issue a writ of mandamus compelling Defendants to issue California’s FY 2018 JAG

19 award without the Certification Requirements, and disbursal of California’s FY 2018 JAG funds;

20 and

21

5. Award the State costs and grant such other relief as the Court may deem just and

22 proper.

23

24

25

26

27

28 35
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 37 of 153

1 Dated: August 23, 2018

Respectfully Submitted,

2

XAVIER BECERRA

Attorney General of California

3

MICHAEL NEWMAN

Senior Assistant Attorney General

4

SATOSHI YANAI

Supervising Deputy Attorney General

5

/s/ Lee I. Sherman

6

/s/ Sarah E. Belton

7

LEE I. SHERMAN

SARAH E. BELTON

8

Deputy Attorneys General

Attorneys for Plaintiff

9

State of California

10

11

12

13

14

15

16

17

18

19

20

21

22

23

24

25

26

27

28 36
Complaint for Declaratory, Injunctive, and Mandamus Relief

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 38 of 153
EXHIBIT $

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 39 of 153

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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 45 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 46 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 47 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 49 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 66 of 153

`ĭ !ĭ3ĭĭĭĭ ĭĭ  ĭ ĭĭ ĭ&?V?ĭ

ĭ<<
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8Kĭ6ĭĭĭ/ĭĭĭ

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v"Cĭ

;%0%M ĭĭ -ĭ %
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-%!ĭcĭ !ĭ

,@ĭ dfe de fĭ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 67 of 153

cĭÉĭcĭ  0ĭ  ĭĭ Éĭ Aĭcĭ  ĭ 
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 68 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 86 of 153
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dfe de fĭ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 87 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 88 of 153
ĭ 2ĭĭ 2ĭ ĭĭĭ?ĭ ĭĭĭ&'ĭĭ 
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dfe de fĭ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 89 of 153
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O&ĭ 
  
0

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 90 of 153
R== :ĭĭ
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ĭĭ ĭĭĭĭĭĭ îEĭ ĭĭEĭĭĭĭĭĭĭ
 ĭ
0 
  
0

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 91 of 153

R== :ĭĭ



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0

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0

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 92 of 153
1ĭ1ĭ
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ĭ  ĭ/ĭĭĭĭ ĭ( ĭGĭ
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dfe de fĭ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 93 of 153

S^Tĭ 4ĭ
 ĭ ĭ
ĭĭ ĭĭ 
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ĭĭ
ĭĭĭĭ ĭĭĭ

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ĭĭĭĭ1
ĭĭ ĭGĭ
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ĭĭ1ĭĭ*
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OOĭ dfe de fĭ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 94 of 153

R== :ĭyĭ R==97"# ĭ _L7§9.ĭ

/ZRZ *x] >]uzhRp:hW]'hRxW]5Rx:'5DzcRu! 2O    HR] H z p h W hRhzx

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WL"ĭ" ĭR==97" ĭ[L#>9:ĭ#ĭ

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³vj¤n¶nlnj|ĨjĨk¯¯u|ln|·ûĨ|jĨkgĨjĨË¿»Ĩ|kĨukĨ¥ul¤Ĩf *ĨĨĨĨĨĨĨ 
ĨĨĨ
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ĨĨ
dĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 103 of 153
Ìl¤gvĨvgklvnlnj|kĨj|ĨkgĨjĨ|kĨf 'ĨĨĨĨ
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Ĩ ĨĨĨ2ĨĨĨĨ Ĩ JĨ
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ĨĨĨ
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)Ĩ Ĩ0ĨĨĨĨ3],.
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LĨXĨ]aĨ##6 ĨG$#^7/Ĩ ?#76Ĩ]aĨ G#6;/Ĩ!7Ĩb/ ĨG$!; ;/Ĩ #Ĩ!/ / / Ĩ 7G!$ ? /Ĩ Ĩ?G6? MĨ]aĨ G$#M$!?/QĨ
ĨĨĨ*Ĩ"Ĩ 3ĨĨĨĨĨ3.]Ĩ,Ĩ"
 Ĩ Ĩ'
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ÅĨ 3ĨĨ 3ĨĨ ĨĨ)cĨ+(&DĨ*ĨĨĨĨ ĨĨĨĨ
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ĨĨĨ
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Ĩ8
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ĨHĨggĨAOĨ =,ĨĨ &(+(+ &Ĩ)ĨĨĨĨF-
ĨHĨĨĨĨĨ -Ĩ ĨĨĨĨ Ĩ ĨĨ*Ĩ)Ĩ
ĨĨĨ
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ĨĨĨĨĨĨ)cĨ+(&DĨ*ĨĨĨĨ Ĩ ĨĨĨĨ%"ĨĨĨ  ĨĨ ĨĨĨ
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 ĨĨ P ĨÏggĨAOĨ=,ĨĨ&(+(+ Ĩ5Ĩ  ĨĨ
ĨĨĨĨ Ĩ ĨĨJĨ }E1)E13@Ğ],9Ĩ
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 104 of 153

ĨĨĨ
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Ĩ ĨĨ
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=ĨĨ
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)Ĩ ĨĨ4 ĨĨĨ)cĨ+(&DĨ*ĨĨĨ Ĩ
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ĨĨĨĨ
DĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 105 of 153
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&&Ĩ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 108 of 153
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&+Ĩ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 109 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 112 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 114 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 123 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 124 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 125 of 153

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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 126 of 153
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Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 133 of 153
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OZĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 144 of 153
YWĨ;G #ĨI#$Ĩ$?#^!6Ĩ#IĨ#^#6 Ĩ#II7$/Ĩ G$#$Ĩ #Ĩ;#?G6 #Ĩ#IĨ/  ;Ĩ#IĨ ?G$/ #? Ĩ 5ĨĨ*
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ĨĨĨ=ĨĨĨĨĨ ĨĨĨĨ ĨĨ Ĩ
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ODĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 145 of 153
Ĩ  ĨĨ ĨĨ
ĨĨ ĨĨĨ ĨĨĨĨ=ĨĨ 0ĨĨĨ 0
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ĨĨ
OwĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 146 of 153
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.. YWĨ Ĩ0Ĩ.
YWĨ ĨĨĨĨĨ=ĨĨĨĨĨĨ ĨĨĨP ¡ĨĨ 
¡Ĩ Ĩ Ĩ
N(Ĩ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 147 of 153
Y­WĨ ĨĨ
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ĨĨĨ
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Ĩ
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=Ĩ
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Ĩ
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Ĩ
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Ĩ§Ĩ ĨĨ *
Ĩ

ĨĨĨĨ,ĨĨĨ ĨĨĨhĨĨ <ĨĨĨ ĨĨĨĨ
x
&ĨĨĨĨ


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Ĩ ĨĨĨ  ĨĨ ĨĨĨBĨ
Ĩ AĨĨĨ
ĨĨĨĨ:ĨĨ ĨĨĨĨĨ
Ĩ
ĨĨ=ĨĨĨ 
Ĩ
Ĩ4 ĨĨ
BĨ Ĩ
N&Ĩ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 148 of 153
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 Ĩ)ĨĨ-ĨĨĨĨĨ
ĨĨ

ĨĨĨ*Ĩ ĨĨ

ĨĨĨĨĨĨ
 
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Ĩ
 Ĩ ĨĨĨ Ĩ

Ĩ ĨĨĨĨ 

 ĨĨĨĨ Ĩ Ĩ ĨĨ*ĨĨĨĨĨĨ

ĨĨ:%ĨĨ-Ĩ <ĨĨĨ-ĨĨĨ-ĨĨ ĨĨĨĨĨ
Ĩ òCĨ ĨĨCĨ ĨĨĨĨĨĨ Ĩ
N+Ĩ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 149 of 153

XGG7ĨĨ

X77 #!6ĨG>$G#//Ĩ I#$Ĩ[L;LĨXĨ I>7/Ĩ ![!$77Ĩ #Ĩ!Ĩ/ ! Ĩ>7$Ĩ L/ĨĊĨºm Ĩ / #6; ! #Ĩ?!ĨbĨ>/7Ĩ

Y!WĨ 5Ĩ ĨĨĨ
 
Ĩ
ĨĨ
ĨĨ
ĨĨPĨ


ĨĨ+&Ĩ=,ĨĨ D(&ĨĨ-Ĩ ĨĨĨ ĨĨĨ;$?!6Ĩ¸>/ ;Ĩ

ĨĨĨĨ
Ĩ ĨĨĨPĨ ĨĨ 
Ĩ

Ĩ
Ĩ
Ĩ -Ĩ Ĩ   
Ĩ Ĩ Ĩ

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Ĩ Ĩ
ĨĨĨĨ
ĨĨ
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Ĩ

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 Ĩ Ĩ 
Ĩ


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ĨBĨ

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Ĩ

Ĩ


Ĩ Ĩ  ĨĨ Ĩ  
Ĩ Ĩ  
Ĩ


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BĨ

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Ĩ Ĩ

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Ĩ.
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ĨĨ ĨĨĨ 
BĨ

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.
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
ĨĨ 0Ĩ

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Ĩ
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ĨĨ

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ĨP ĨĨĨ Ĩ Ĩ Ĩ

2Ĩ 
Ĩ Ĩ Ĩ4 
Ĩ Ĩ Ĩ
Ĩ

.
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Ĩ
 Ĩ  
Ĩ

 ĨĨĨĨ  ĨĨ  
ĨĨĨĨĨ

4
Ĩ.ĨĨ Ĩ
.Ĩ  ĨĨ Ĩ

BĨ

&+Ĩ Ĩ.Ĩ4 ĨĨĨ
 ĨĨĨĨ


 Ĩ0ĨĨĨĨĨ

Ĩ
ĨĨĨ -Ĩ

NAĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 150 of 153
0
Ĩ0

ĨĨĨ0Ĩ 
ĨĨĨĨĨĨ Ĩ ĨĨĨĨĨ
Ĩ ĨĨĨĨ
ĨĨĨBĨ
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ĨĨ4
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 
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
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ĨĨĨ .ĨĨĨĨ ĨPĨ Ĩ ĨĨĨĨ
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ĨĨĨ Ĩ ĨĨĨ
Ĩ Ĩ  Ĩ Ĩ Ĩ  Ĩ CBĨ &dĨ ĨĨĨĨĨĨĨ  ĨĨ Ĩ  Ĩ Ĩ4 ĨĨĨĨĨ ĨĨ BĨ &ZĨ ĨĨ
ĨĨĨ 0ĨĨĨ


Ĩ  ĨĨ 

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ĨĨ4
Ĩ4 ĨRĨĨĨ  ĨĨ
Ĩ
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
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Ĩ
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Ĩ ĨĨ
CĨĨ
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Ĩ BĨ +(Ĩ Ĩ
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Ĩ ĨĨĨ ĨĨĨĨĨĨĨ BĨ +&Ĩ ĨĨ ĨĨĨ
ĨĨĨĨĨ  ĨĨ ĨĨĨĨĨĨ
BĨ ++Ĩ ĨĨĨ ĨĨĨ
Ĩ2 Ĩ Ĩ ĨĨ ĨĨĨ
Ĩ
ĨĨ
 
ĨĨĨĨĨĨ Ĩ 
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Ĩ&d. Ĩ&Z..
Ĩ4
ĨĨ ĨĨ4 Ĩ Ĩ
Ĩ ĨĨ Ĩx
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ĨĨĨĨĨBĨ )Ĩ 
Ĩ2
ĨĨĨĨĨĨBĨ Ĩ *Ĩ .ĨĨĨ Ĩ&DĨ=,ĨĨ AdBĨ +OĨ 
. ĨĨĨ Ĩ
ĨĨĨĨĨ Ĩ ĨĨ
Ĩ ĨĨ0Ĩ Ĩ
ĨĨBĨ +NĨ 
ĨĨĨĨĨ Ĩ
Ĩ Ĩ 
ĨĨ 
CĨ:8ĨĨ ĨBĨ Ĩ +dĨ 
ĨĨ
Ĩ.ĨĨĨĨ  Ĩ-ĨĨĨĨ
 
Ĩ
. ĨBĨ Ĩ
NOĨ rtSUoTqSTpVUVĨ

Case 4:18-cv-05169-KAW Document 1 Filed 08/23/18 Page 151 of 153

Y bWĨ 5Ĩ Ĩ ĨĨĨ
 ĨĨ 
ĨĨĨ
ĨĨ

Ĩ

JĨ

&Ĩ

Ĩ Ĩ Ĩ
ĨĨĨ ĨĨĨ


Ĩ
Ĩ ĨP ĨĨ ĨĨ
BĨ

3Ĩ ĨĨĨ
.
Ĩ
Ĩ Ĩ

 ĨĨ ĨĨ
ĨĨĨĨĨ Ĩ

ĨĨĨĨ0ĨĨ Ĩ
BĨ Ĩ

,Ĩ  Ĩ-Ĩ  
Ĩ ĨĨ
Ĩ

 
Ĩ
ĨĨ Ĩ
. Ĩ BĨ

+Ĩ  Ĩ Ĩx

Ĩ ĨĨĨ 
BĨ Ĩ

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ĨĨ
 ĨĨĨ

ĨĨĨĨĨ
 
ĨĨĨĨĨ 
Ĩ0ĨĨ

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2 

Ĩ
Ĩ
. ĨP 
ĨĨĨĨĨĨ

 Ĩ Ĩ ĨĨĨĨ ĨĨ 
Ĩ Ĩ 
Ĩ

. ĨĨ C.
ĨĨ 2
.
ĨĨ 


 ĨĨ ĨĨĨĨĨ4
Ĩ BĨ

OĨ 
ĨĨĨĨ BĨ

NĨ 
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 Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 1 of 40

1 XAVIER BECERRA Attorney General of California
2 MICHAEL NEWMAN Senior Assistant Attorney General
3 SARAH E. BELTON Supervising Deputy Attorney General
4 CHEROKEE DM MELTON LEE I. SHERMAN (SBN 272271)
5 Deputy Attorneys General 300 S. Spring St., Suite 1702
6 Los Angeles, CA 90013 Telephone: (213) 269-6404
7 Fax: (213) 897-7605 E-mail: Lee.Sherman@doj.ca.gov
8 Attorneys for Plaintiff State of California

9

IN THE UNITED STATES DISTRICT COURT

10

FOR THE NORTHERN DISTRICT OF CALIFORNIA

11

SAN FRANCISCO DIVISION

12

13

STATE OF CALIFORNIA, ex rel, XAVIER Case No. 18-cv-5169

14 BECERRA, in his official capacity as

Attorney General of the State of California,

15

Plaintiff, FIRST AMENDED COMPLAINT FOR

16

DECLARATORY, INJUNCTIVE, AND

v.

MANDAMUS RELIEF

17

18 JEFFERSON B. SESSIONS, in his official capacity as Attorney General of the United
19 States; MATT M. DUMMERMUTH, in his official capacity as Principal Deputy
20 Assistant Attorney General; UNITED STATES DEPARTMENT OF JUSTICE;
21 and DOES 1-100,

22

Defendants.

23

24

25

26

27

28

First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 2 of 40

1

1. Plaintiff State of California, ex rel. Xavier Becerra, California Attorney General

2 (“Plaintiff” or “California”), brings this complaint to protect California from the latest attempt by

3 the Trump Administration to strip law enforcement funding from the State unless the State and

4 local governments in California agree to participate in the Administration’s immigration

5 enforcement program. For fiscal year (FY) 2017, this Court held that the immigration-

6 enforcement requirements that Defendants sought to impose on the State’s law enforcement

7 grants to be unconstitutional, and permanently enjoined their implementation against California.

8 In FY 2018, not only have Defendants continued to impress the same or similar requirements in

9 disregard of the decisions reached by this and other courts, but they have doubled down by adding

10 more onerous immigration enforcement requirements on law enforcement funding.

11

2. The Edward Byrne Memorial Justice Assistance Grant (“JAG”) program remains the

12 centerpiece of Defendants’ efforts to disqualify California law enforcement from receiving

13 federal funding. For FY 2018, Congress appropriated $28.9 million in JAG funding to California

14 and its political subdivisions. The United States Department of Justice (“USDOJ”), led by

15 Attorney General Jefferson B. Sessions III, and the Office of Justice Programs (“OJP”), led by

16 Principal Deputy Assistant Attorney General Matt M. Dummermuth1 (collectively, with USDOJ

17 and Attorney General Sessions, the “Defendants”), are responsible for administering this

18 program. JAG awards are provided to each state, and certain local jurisdictions within each state,

19 to, among other things, support law enforcement programs, reduce recidivism, conduct crime

20 prevention and education programs for at-risk youth, and support programs for crime victims and

21 witnesses. Every state is entitled by law to a share of these funds.

22

3. In FY 2017, Defendants added unprecedented immigration enforcement conditions to

23 JAG funding. On October 5, 2018, this Court struck down all of the immigration enforcement

24 conditions added to FY 2017 JAG funding. Order re: Mots. for Summ. Judg., California, ex rel

25 1 On October 5, 2018, Defendants announced Matt M. Dummermuth as the new head of
26 the Office of Justice Programs. See Press Release, U.S. Dep’t of Justice, Department of Justice Announces Matt Dummermuth to Head the Office of Justice Programs (Oct. 5, 2018),
27 https://www.justice.gov/opa/pr/department-justice-announces-matt-dummermuth-head-officejustice-programs. He automatically substitutes for Laura L. Rogers as a defendant pursuant to
28 Federal Rule of Civil Procedure 25(d). 1
First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 3 of 40

1 Becerra v. Sessions (“Becerra I”), No. 17-cv-4701 (N.D. Cal. Oct. 5, 2018) ECF No. 137 (“MSJ

2 Order”). Courts across the country have likewise unanimously found those conditions to be

3 unconstitutional. See Chicago v. Sessions, 888 F.3d 272 (7th Cir. 2018); Order Granting Pl.’s

4 Appl. for Prelim. Inj., Los Angeles v. Sessions, No. 17-cv-7215 (C.D. Cal. Sept. 13, 2018) ECF

5 No. 93, appeal docketed, 18-56292 (9th Cir. Oct. 1, 2018); Chicago v. Sessions, 321 F. Supp. 3d

6 855, 874 (N.D. Ill. 2018), appeal docketed, 18-2885 (7th Cir. Aug. 28, 2018); Philadelphia v.

7 Sessions, 309 F. Supp. 3d 289 (E.D. Pa. 2018), appeal docketed, 18-2648 (3d Cir. July 26, 2018).

8

4. Rather than re-consider the lawfulness of the conditions, for FY 2018 JAG funding,2

9 Defendants have maintained a requirement that the chief legal officer of the jurisdiction applying

10 for funding (the Attorney General in the case of the State) must certify compliance with 8 U.S.C.

11 § 1373, which prohibits restrictions on certain exchanges of information regarding a person’s

12 immigration or citizenship status. But Defendants cannot require compliance with § 1373 as a

13 condition for federal funding for the simple reason that § 1373 itself is unconstitutional under the

14 Tenth Amendment of the U.S. Constitution. Four federal courts, including this one, have recently

15 called into question the legality of § 1373 or declared it unconstitutional.

16

5. For JAG, Defendants demand more than compliance with § 1373. In order to receive

17 FY 2018 JAG funding, Defendants also require that jurisdictions certify compliance with 8

18 U.S.C. § 1644, certify to not “imped[ing] the exercise by federal officers of authority” under or

19 relating to 8 U.S.C. §§ 1226(a) & (c), 1231(a), 1357(a), and 1366(1) & (3). Defendants also seek

20 to broadly prohibit jurisdictions from publicly disclosing information provided, and requests

21 made, by immigration authorities, which Defendants claim relates to 8 U.S.C. § 1324, a federal

22 statute that prohibits persons from concealing, harboring, or shielding “aliens.” Plaintiff refers to

23 all of these requirements collectively as the “Immigration Enforcement Requirements.” The

24 Immigration Enforcement Requirements, as described in the FY 2018 JAG Awards, effectively

25 2 U.S. Dep’t of Justice, Edward Byrne Memorial Justice Assistance Grant Program: FY
26 2018 State Solicitation (2018) (“JAG State Solicitation) (attached as Ex. A); see also U.S. Dep’t of Justice, Edward Byrne Memorial Justice Assistance Grant Program: FY 2018 Local
27 Solicitation (2018) (“JAG Local Solicitation,” collectively with the JAG State Solicitation, “JAG Solicitations”) (attached as Ex. B). An example of a FY 2018 JAG award is attached as Exhibit C
28 and referred to as the “FY 2018 JAG Award.” 2
First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 4 of 40

1 require law enforcement to respond to requests from immigration authorities for a person’s

2 release date from custody, to provide immigration authorities with access, without delay, to

3 detention facilities, and to limit transparency about requests made by immigration authorities.

4

6. Defendants claim that these Immigration Enforcement Requirements reflect

5 “applicable Federal laws.” They do not. First, these Immigration Enforcement Requirements are

6 not an accurate reflection of federal immigration law; there is no requirement in federal

7 immigration law for state or local governments to assist in immigration enforcement and, aside

8 from the narrow prohibitions in §§ 1373 and 1644, no broad requirement for state or local

9 governments to allow use of their personnel and resources for immigration enforcement. Second,

10 Defendants are constrained in adding conditions to formula grants, such as JAG, that are not

11 tethered to federal law. Congress has not tied any of these laws, including § 1373, to federal

12 grant-making. Most of these laws have no applicability to state and local governments. In

13 addition, these requirements conflict with Congress’s intent to not condition federal funding on

14 immigration enforcement related activities.

15

7. Since Congress did not attach these requirements to federal funding, Defendants lack

16 authority to interpret “applicable Federal laws” in a manner that would result in commandeering

17 state and local government functions in violation of the Tenth Amendment of the U.S.

18 Constitution. These Immigration Enforcement Requirements intrude on the sovereignty of

19 California and its local jurisdictions by interpreting federal law as requiring state and local

20 governmental participation in federal immigration enforcement and preventing the State from

21 declining participation in federal immigration enforcement.

22

8. To the extent Defendants have statutory authority to impose the Immigration

23 Enforcement Requirements, Defendants have exceeded constitutional limits under the Spending

24 Clause of the U.S. Constitution. The Immigration Enforcement Requirements are not sufficiently

25 related to the federal purposes that Congress designed for those funding schemes and are too

26 ambiguous to provide clear notice to the State or its political subdivisions as to what is needed to

27 comply. The Immigration Enforcement Requirements also violate the Administrative Procedure

28 3
First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 5 of 40

1 Act (“APA”) because of their constitutional infirmities, and because Defendants acted in excess

2 of their statutory authority and in an arbitrary and capricious manner.

3

9. California complies with all of the requirements identified in the JAG authorizing

4 statute, and that apply to federal grantees under federal law. Nevertheless, while California’s

5 laws comply with the Immigration and Nationality Act (“INA”), since the Immigration

6 Enforcement Requirements exceed what may be required under “applicable Federal law,”

7 California will most certainly face an enforcement action if it agrees to the Immigration

8 Enforcement Requirements. Defendants have already tried to withhold JAG awards from all state

9 entities and local jurisdictions in California because under their theory, California does not

10 comply with § 1373. The United States sued California in the Eastern District of California,

11 unsuccessfully claiming that Senate Bill 54, which consists of the Amended Transparency and

12 Responsibility Using State Tools Act (“TRUST Act”), Cal. Gov’t Code §§ 7282-7282.5, and the

13 California Values Act, Cal. Gov’t Code §§ 7284-7284.12, “impedes” federal immigration

14 officials in violation of federal law. However, as that court found, California’s laws do not stand

15 as an obstacle to prevent immigration authorities from doing their jobs using their own resources.

16 Instead, California’s laws are designed to foster community trust between law enforcement and

17 the communities they serve, and to allocate limited law enforcement resources in a manner that is

18 in the best interest of the State’s public safety. Likewise, California’s Transparent Review of

19 Unjust Transfers and Holds (“TRUTH”) Act, Cal. Gov’t Code §§ 7283-7283.2, does not

20 “impede” federal law enforcement merely because California has determined that transparency by

21 state and local law enforcement regarding immigration enforcement is an important method to

22 promote public safety, trust, and community policing. Defendants cannot enforce the “applicable

23 Federal laws” in the manner that they intend because such an erroneous interpretation of these

24 federal laws would allow the federal government to commandeer the State’s direction of its law

25 enforcement.

26

10. Not only are these Immigration Enforcement Requirements unlawful, but agreeing to

27 them will cause California harm by requiring that the State and local jurisdictions terminate their

28 public safety oriented laws and policies. This means that the State and its localities will lose 4
First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 6 of 40

1 control of their ability to focus their resources on fighting crime and instead will devote resources

2 to federal immigration enforcement. The trust and cooperation that the State’s laws and local

3 ordinances are intended to build between law enforcement and immigrant communities will be

4 eroded. Alternatively, if the State refuses to comply with the Immigration Enforcement

5 Requirements, or if Defendants refuse to provide funding to California on the basis of these

6 unlawful requirements, important public safety programs will likely need to be cut to the

7 detriment of state and local law enforcement agencies and their budgets.

8

11. For these reasons, and those discussed below, the Court should declare the

9 Immigration Enforcement Requirements are unconstitutional and/or a violation of the APA,

10 enjoin their imposition, and pursuant to 28 U.S.C. § 1361 require that Defendants issue JAG

11 awards and funding to the State and its local jurisdictions that comply with the requirements

12 enumerated by Congress.

13

JURISDICTION AND VENUE

14

12. Jurisdiction is proper in this Court under 28 U.S.C. § 1331 because this case arises

15 under the Constitution and the laws of the United States. The Court also has jurisdiction under 28

16 U.S.C. § 1346 because this is a civil action against the federal government founded upon the

17 Constitution and an Act of Congress. Jurisdiction is proper under the judicial review provisions

18 of the Administrative Procedure Act, 5 U.S.C. §§ 701-06. The Court has authority to provide

19 relief under the Declaratory Judgment Act, 28 U.S.C. § 2201, and the Mandamus Statute, 28

20 U.S.C. § 1361.

21

13. Under 28 U.S.C. § 1391(e)(1), venue is proper in the Northern District of California

22 because the Attorney General and the State of California have offices at 455 Golden Gate

23 Avenue, San Francisco, California and at 1515 Clay Street, Oakland, California, and Defendants

24 have offices at 450 Golden Gate Avenue, San Francisco, California.

25

INTRADISTRICT ASSIGNMENT

26

14. Assignment to the San Francisco Division of this District is proper pursuant to Civil

27 Local Rule 3-2(c)-(d) because Plaintiff and Defendants both maintain offices in the District in

28 San Francisco. 5
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1 PARTIES
2 15. Plaintiff State of California is a sovereign state in the United States of America.
3 16. California is aggrieved by the actions of Defendants and has standing to bring this
4 action because of the injury to its sovereignty as a State caused by the challenged federal actions.
5 The inclusion of unconstitutional and unlawful Immigration Enforcement Requirements impairs
6 the State’s exercise of its police power in a manner it deems necessary to protect the public
7 safety. The Immigration Enforcement Requirements burden California’s exercise of its sovereign
8 power to enforce its laws, and place a regulatory burden on California as a funding recipient,
9 obligating the State to continuously monitor compliance of all subgrantees throughout the State,
10 which will result in increased staff time and expenses.
11 17. As a result of Defendants’ unconstitutional and unlawful actions, the State of
12 California, including its political subdivisions, is in imminent danger of losing $28.9 million for
13 JAG this fiscal year, including $18 million that is owed to the State itself.
14 18. Plaintiff Attorney General Xavier Becerra is the chief law officer of the State and the
15 head of the California Department of Justice. Cal. Const., art. V, § 13; Cal. Gov’t Code § 12510.
16 Attorney General Becerra, on behalf of California, has standing to bring this action because
17 funding for law enforcement throughout the State is at stake. See Pierce v. Super. Ct., 1 Cal.2d
18 759, 761-62 (1934) (Attorney General “has the power to file any civil action or proceeding
19 directly involving the rights and interests of the state . . . and the protection of public rights and
20 interests.”). As the State’s Chief Law Officer, the Attorney General is responsible for ensuring
21 that the laws of the State are enforced. Cal. Const., art. V, § 13. The Immigration Enforcement
22 Requirements undermine California statutes. In addition, the Attorney General has standing on
23 the basis of the requirement that he personally agree to the Immigration Enforcement
24 Requirements.
25 19. Defendant U.S. Department of Justice (“USDOJ”) is an executive department of the
26 United States of America pursuant to 5 U.S.C. § 101, and a federal agency within the meaning of
27 28 U.S.C. § 2671. As such, it engages in agency action within the meaning of 5 U.S.C. § 702,
28
6
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1 and is named as a defendant in this action pursuant to 5 U.S.C. § 702. USDOJ is responsible for

2 administering the JAG funds appropriated by Congress.

3

20. Defendant Jefferson B. Sessions III, is Attorney General of the United States, and

4 oversees USDOJ, including the Office of Justice Programs (“OJP”). He is sued in his official

5 capacity pursuant to 5 U.S.C. § 702.

6

21. Defendant Matt M. Dummermuth is Principal Deputy Assistant Attorney General in

7 charge of OJP, which administers JAG funding. He is sued in his official capacity pursuant to 5

8 U.S.C. § 702.

9

22. Each of the Defendants named in this Complaint are acting in their official capacity

10 for the United States government bearing responsibility, in whole or in part, for the acts

11 enumerated in this Complaint.

12

23. The true names and capacities of Defendants identified as DOES 1-100 are unknown

13 to Plaintiff, and Plaintiff will amend this Complaint to insert the true names and capacities of

14 those fictitiously named Defendants when they are ascertained.

15

FACTUAL ALLEGATIONS

16 I. 17

CALIFORNIA’S LAWS SEEK TO PROTECT THE SAFETY AND WELFARE OF THE STATE’S RESIDENTS BY FOCUSING LAW ENFORCEMENT ON CRIMINAL ACTIVITY AND BUILDING TRUST BETWEEN LAW ENFORCEMENT AND COMMUNITIES

18

24. California state and local law enforcement agencies (“LEAs”), guided by the duly

19 enacted laws of the State and ordinances of local jurisdictions, are tasked with effectively

20 policing, protecting, and serving all residents, including more than 10 million foreign-born

21 individuals who live in the State. California’s laws implicated in this suit are a valid exercise of

22 the State’s police power to regulate regarding the health, welfare, and public safety of its

23 residents. These laws strengthen community policing efforts by encouraging undocumented

24 victims to report crimes to local law enforcement so that perpetrators are apprehended before

25 harming others.

26

25. The purpose of these California laws is to ensure that law enforcement resources are

27 focused on a core public safety mission and to build trust and cooperation between law

28 enforcement and the State’s immigrant communities. When local and state LEAs engage in 7
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1 immigration enforcement, as Defendants contemplate, vulnerable victims and witnesses are less

2 likely to come forward to report crimes.

3

26. California’s laws are not unique. Many jurisdictions across the country, including

4 local jurisdictions in California, have policies that define the circumstances under which local law

5 enforcement personnel may expend time and resources in furtherance of federal immigration

6 enforcement. Those jurisdictions variously impose limits on compliance with Immigration and

7 Customs Enforcement (“ICE”) detainer requests, ICE notification requests about release dates,

8 and ICE’s access to detainees, or provide additional procedural protections for individuals prior to

9 an interview with immigration authorities.

10

A. The TRUST Act

11

27. In 2013, California enacted the TRUST Act, Cal. Gov’t Code §§ 7282-7282.5. The

12 TRUST Act defined the circumstances under which local LEAs may detain an individual at the

13 request of federal immigration authorities. The TRUST Act went into effect on January 1, 2014.

14

28. The TRUST Act was intended to address numerous public safety concerns regarding

15 the federal practice of issuing detainers to local law enforcement. Among the Legislature’s

16 concerns were that federal courts have concluded that detainer requests do not provide sufficient

17 probable cause to satisfy the requirements of the Fourth Amendment of the U.S. Constitution, and

18 data showing that detainer requests “have erroneously been placed on United States citizens, as

19 well as immigrants who are not deportable.” Assem. Bill No. 4, 1st Reg. Sess. (Cal. 2013) § 1(c).

20

29. The TRUST Act previously set forth two conditions that local law enforcement must

21 meet to have discretion to detain a person pursuant to an “immigration hold” (also known as a

22 “detainer request” or “detainer hold”), which is when an immigration authority requests that the

23 law enforcement official “maintain custody of the individual for a period not to exceed 48 hours,

24 excluding Saturdays, Sundays, and holidays.” Cal. Gov’t Code § 7282(c) (prior to amendments

25 codified on Oct. 5, 2017). First, the detention could not “violate any federal, state, or local law,

26 or any local policy,” which includes the Fourth Amendment of the U.S. Constitution. Id. §

27 7282.5(a) (prior to amendments codified on Oct. 5, 2017). Second, law enforcement could only

28 detain someone with certain, specified criminal backgrounds, an individual on the California Sex 8
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1 and Arson Registry, or a person charged with a serious or violent felony who was the subject of a

2 probable cause determination from a magistrate judge. Id. § 7282.5(a)(1)-(6) (prior to

3 amendments codified on Oct. 5, 2017). Only when both of these conditions were met could local

4 law enforcement detain an individual “on the basis of an immigration hold after the individual

5 becomes eligible for release from custody.” Id. § 7282.5(b).

6

B. The TRUTH Act

7

30. In 2016, California enacted the TRUTH Act, Cal. Gov’t Code §§ 7283-7283.2, which

8 took effect on January 1, 2017. The purpose of the TRUTH Act is to increase transparency about

9 immigration enforcement and “to promote public safety and preserve limited local resources

10 because entanglement between local law enforcement and ICE undermines community policing

11 strategies and drains local resources.” Assem. Bill No. 2792, Reg. Sess. (Cal. 2016) § 2(a)-(c),

12 (g)-(i).

13

31. Under the TRUTH Act, prior to ICE interviewing someone being held in custody, a

14 law enforcement officer must provide the detained individual with a “written consent form that

15 explains the purpose of the interview, that the interview is voluntary, and that he or she may

16 decline to be interviewed or may choose to be interviewed only with his or her attorney present.”

17 Cal. Gov’t Code § 7283.1(a). In addition, when a LEA receives a detainer, notification, or

18 transfer request, the LEA must “provide a copy of the request to the [detained] individual and

19 inform him or her whether the law enforcement agency intends to comply with the request.” Id. §

20 7283.1(b). If the LEA complies with ICE’s request to notify ICE as to when the individual will

21 be released, it must also “promptly provide the same notification in writing to the individual and

22 to his or her attorney or to one additional person who the individual shall be permitted to

23 designate.” Id.

24

C. The California Values Act

25

32. On October 5, 2017, Governor Edmund G. Brown Jr. signed into law the California

26 Values Act, Cal. Gov’t Code §§ 7284-7284.12, which took effect on January 4, 2018. In

27 conjunction with this measure, California amended the TRUST Act.

28 9
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1

33. The Values Act sets the parameters under which California law enforcement agencies

2 may participate in immigration enforcement. The California Department of Corrections and

3 Rehabilitation (“CDCR”) is not considered a “California law enforcement agency” for purposes

4 of the Values Act. Cal. Gov’t Code § 7284.4(a).

5

34. Consistent with the Legislature’s purpose in passing the TRUST and TRUTH Acts, in

6 its findings, the Legislature emphasized that “[a] relationship of trust between California’s

7 immigrant community and state and local agencies is central to the public safety of the people of

8 California.” Id. § 7284.2(b). The Legislature recognized “[t]his trust is threatened when state and

9 local agencies are entangled with federal immigration enforcement, with the result that immigrant

10 community members fear approaching police when they are victims of, and witnesses to, crimes,

11 seeking basic health services, or attending school, to the detriment of public safety and the well-

12 being of all Californians.” Id. § 7284.2(c). The Legislature declared that the focus of the Values

13 Act is “to ensure effective policing, to protect the safety, well-being, and constitutional rights of

14 the people of California, and to direct the state’s limited resources to matters of greatest concern

15 to state and local governments.” Id. § 7284.2(f).

16

35. The Values Act generally prohibits California law enforcement agencies from using

17 agency money or personnel to ask an individual about his or her immigration status for

18 immigration enforcement purposes. Id. § 7284.6(a)(1)(A).

19

36. The Values Act, expanding upon the limitations contained in the prior iteration of the

20 TRUST Act, prohibits compliance with detainer requests. See id. § 7284.6(a)(1)(B). In doing so,

21 the Legislature recognized that federal courts have found state and local law enforcement

22 compliance with detainer holds to be in violation of the Fourth Amendment when the detainer

23 holds are not supported by the requisite probable cause. See id. § 7284.2(e). Presently, it is ICE

24 policy to attach an administrative warrant to a detainer hold.3 However, that administrative

25 warrant is signed by an administrative officer, and not a federal judge. See id. The administrative

26 warrant only provides “probable cause . . . that the subject is an alien who is removable from the

27

3 U.S. Immigration and Customs Enforcement, Issuance of Immigration Detainers by ICE

Immigration Officers, § 2.4 (Mar. 24, 2017), 28 https://www.ice.gov/sites/default/files/documents/Document/2017/10074-2.pdf.

10

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1 United States,” but does not provide probable cause that the subject of the detainer hold is

2 believed to have violated a criminal offense. Id.

3

37. In conjunction with the passage of the Values Act, the TRUST Act was amended to

4 identify the circumstances when local law enforcement has discretion to respond to notification

5 requests. Id. § 7282.5(a). “Notification request[s]” are requests by an immigration authority

6 asking that a law enforcement official inform it “of the release date and time in advance of the

7 public of an individual in its custody.” Id. §§ 7282(c), 7283(f). Notification requests are made by

8 immigration authorities on the I-247A form that also includes a detainer request.4

9

38. Under the Values Act, LEAs have discretion to comply with notification requests if

10 doing so would not “violate any federal, state, or local law, or local policy.” Cal. Gov’t Code §

11 7282.5(a); see id. § 7284.6(a)(1)(C). In addition, the Values Act allows LEAs to comply with

12 notification requests under one of two scenarios. First, LEAs may respond to notification

13 requests regarding someone who was previously convicted of one or more of a multitude of

14 felonies or misdemeanors identified in the TRUST Act, a person charged with one or more of an

15 array of felonies who was subject to a probable cause determination from a magistrate judge, or

16 an individual on the California Sex and Arson Registry. Id. § 7282.5. Alternatively, LEAs may

17 comply with a notification request if the information requested is already “available to the

18 public.” Id. § 7284.6(a)(1)(C).

19

39. The Values Act prohibits LEAs from using agency or department money or personnel

20 to “[p]rovid[e] personal information, as defined in Section 1798.3 of the Civil Code, about an

21 individual” “for immigration enforcement purposes,” unless that information is publicly

22 available. Id. § 7284.6(a)(1)(D). “Personal information” is defined in the Civil Code as any

23 information “that identifies or describes an individual, including, but not limited to, his or her

24 name, social security number, physical description, home address, home telephone number,

25 education, financial matters, and medical or employment history” and “includes statements made

26 by, or attributed to, the individual.” Cal. Civ. Code § 1798.3(a).

27 4 Department of Homeland Security, Immigration Detainer - Notice of Action,
28 https://www.ice.gov/sites/default/files/documents/Document/2017/I-247A.pdf. 11
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1

40. The Values Act also limits when a LEA may transfer an individual to immigration

2 authorities. Cal. Gov’t Code § 7284.6(a)(4). Under the Values Act, LEAs may transfer a person

3 to immigration authorities under two scenarios. First, the LEA may transfer a person to

4 immigration authorities if the immigration authority presents a judicial warrant or judicial

5 probable cause determination by a federal judge or a federal magistrate judge for a violation of

6 federal criminal immigration law. Id. §§ 7284.4(h) & (i), 7284.6(a)(4). Second, LEAs may

7 respond to transfer requests regarding someone who was previously convicted of one or more of a

8 multitude of felonies or misdemeanors identified in the TRUST Act, or an individual on the

9 California Sex and Arson Registry. Id. § 7282.5(a).

10

41. The Values Act expressly authorizes compliance with all aspects of §§ 1373 and

11 1644. Id. § 7284.6(e).

12

42. Neither the Values nor TRUTH Acts prohibit a jurisdiction from allowing ICE to

13 access its jails to interview inmates. The Values Act explicitly reaffirms the absence of any such

14 restriction, and requires only that state and local law enforcement, including CDCR, comply with

15 the TRUTH Act when providing such access to immigration authorities. Id. §§ 7284.6(b)(5),

16 7284.10(a).

17 II. CONGRESS DID NOT INTEND JAG TO BE CONDITIONED ON STATE AND LOCAL LAW ENFORCEMENT ASSISTING IN FEDERAL IMMIGRATION ENFORCEMENT
18 43. JAG is administered by OJP within USDOJ. JAG funding is authorized by Congress
19 under 34 U.S.C. §§ 10151-10158. The authorizing statute has been amended numerous times
20 since its inception in 1988, evolving into the JAG program as it exists today.
21 44. The Anti-Drug Abuse Act of 1988 amended the Omnibus Crime Control and Safe
22 Streets Act of 1968 to create the Edward Byrne Memorial State and Local Law Enforcement
23 Assistance Programs grants (“Byrne Grants”) “to assist States and units of local government in
24 carrying out specific programs which offer a high probability of improving the functioning of the
25 criminal justice system.” Anti-Drug Abuse Act of 1988, Pub. L. No. 100-690, tit. VI, § 6091(a),
26 102 Stat. 4181, 4328 (1988) (repealed 2006). Congress placed a “special emphasis” on programs
27 that support national drug control priorities across states and jurisdictions. Id. Congress
28
12
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1 identified 21 “purpose areas” for which Byrne Grants could be used. Many of the purpose areas

2 relate to the investigation, enforcement, and prosecution of drug offenses. See id. Immigration

3 enforcement was never specified in any of the grant purpose areas.

4

45. In amendments between 1994 and 2000, Congress identified eight more purpose areas

5 for which Byrne funding could be used, bringing the total to 29. 42 U.S.C. § 3751(b) (as it

6 existed on Dec. 21, 2000) (repealed 2006). Immigration enforcement was not specified in any of

7 these eight additional purpose areas.

8

46. For FY 1996, Congress separately authorized Local Law Enforcement Block Grants

9 (“LLEBG”) that directed payment to units of local government for the purpose of hiring more

10 police officers or “reducing crime and improving public safety.” Local Government Law

11 Enforcement Block Grants Act of 1995, H.R. 728, 104th Cong. (1995). Congress identified nine

12 “purpose areas” for LLEBG, none of which were immigration enforcement. Id.

13

47. The Byrne Grant and LLEBG programs were then merged to eliminate duplication,

14 improve their administration, and to provide state and local governments “more flexibility to

15 spend money for programs that work for them rather than to impose a ‘one size fits all’ solution”

16 to local law enforcement. H.R. Rep. No. 109-233, at 89 (2005); see also Pub. L. No. 108-447,

17 118 Stat. 2809, 2863 (2004); 34 U.S.C. § 10151(a), (b)(1).

18

48. Currently, the JAG authorizing statute enumerates eight purpose areas for: (A) law

19 enforcement programs; (B) prosecution and court programs; (C) prevention and education

20 programs; (D) corrections and community corrections programs; (E) drug treatments and

21 enforcement programs; (F) planning, evaluation, and technology improvement programs; (G)

22 crime victim and witness programs; and (H) mental health programs related to law enforcement

23 and corrections. 34 U.S.C. § 10152(a)(1).

24

49. The purpose areas for these grants are to support criminal justice programs.

25 Immigration enforcement and removal procedures, however, are generally civil in nature. See

26 Arizona v. U.S., 567 U.S. 387, 396 (2012). Immigration enforcement was never specified in the

27 purpose areas for any of these grants throughout this entire legislative history.

28 13
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1

50. In 2006, Congress repealed the only immigration enforcement related requirement

2 that had ever existed for JAG funding, a requirement that the chief executive officer of the state

3 receiving JAG funding provide certified records of criminal convictions of “aliens.” See

4 Immigration Act of 1990, Pub. L. No. 101-649, tit. V, § 507(a), 104 Stat. 4978, 5050-51 (1990);

5 Miscellaneous and Technical Immigration and Naturalization Amendments of 1991, Pub. L. No.

6 102-232, tit. III, § 306(a)(6), 105 Stat. 1733, 1751 (1991) (repealed 2006). This is consistent with

7 the statutory scheme that does not include a purpose area connected to immigration enforcement

8 The repeal of this provision also evidences Congress’ intent not to condition JAG funding on

9 immigration enforcement related activities.

10

51. In addition, more recently, Congress has considered but repeatedly declined to adopt

11 legislation that would penalize cities for setting their own law enforcement priorities and attempt

12 to impose conditions similar to those here.5

13 III. JAG’S STRUCTURE REQUIRES THAT STATE AND LOCAL JURISDICTIONS RECEIVE FORMULA GRANTS
14
A. The JAG Formula Structure and Conditions 15
52. When creating the merged JAG funding structure in 2006, Congress set a formula to 16
apportion JAG funds to state and local jurisdictions. 34 U.S.C. § 10156. Population and violent 17
crime rates are used to calculate each state’s allocation. Id. § 10156(a)(1). Congress guarantees 18
to each state a minimum allocation of JAG funds. Id. § 10156(a)(2). 19
53. In addition to determining the amount of money received by grantees within each 20
state, Congress set forth how that money is to be shared between state and local jurisdictions. 21
Under the statutory formula, 60 percent of the total allocation to a state must be given directly to 22
the state. Id. § 10156(b)(1). 23

24

25 5 See Securing America’s Future Act of 2018, H.R. 4760, 115th Cong. (2018) (voted down by
26 the House by a vote of 231-193); see also, e.g., No Sanctuary for Criminals Act, H.R. 3003, 115th Cong. (2017); Ending Sanctuary Cities Act of 2016, H.R. 6252, 114th Cong. (2016); Stop Dangerous
27 Sanctuary Cities Act, S. 3100, 114th Cong. (2016); Stop Sanctuary Policies and Protect Americans Act, S. 2146, 114th Cong. (2015); Sanctuary City All Funding Elimination Act of 2015, H.R. 3073,
28 114th Cong. (2015). 14
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1

54. The statutory formula also provides that 40 percent of the total allocation to a state

2 must be given to local governments within the state. Id. § 10156(d)(1). Each unit of local

3 government receives funds based on its crime rate. Id. § 10156(d)(2)(A).

4

55. According to Congress’ JAG funding scheme, states and local governments that apply

5 for JAG funds are required to make limited certifications and assurances. Beyond ministerial

6 requirements identified in the authorizing statute, the chief executive officer of each applicant

7 must certify that: (A) the law enforcement programs to be funded meet all requirements of the

8 JAG authorizing statute; (B) all information in the application is correct; (C) there was

9 coordination with affected agencies; and (D) the applicant will comply with all provisions of the

10 JAG authorizing statute and all other applicable Federal laws. Id. § 10153(a)(5). The

11 requirement for applicants to comply with “all other applicable Federal laws” has existed in

12 federal statute since Byrne-JAG was created in 1988. Anti-Drug Abuse Act of 1988, Pub. L. No.

13 100-690, tit. VI, § 6091(a), 102 Stat. 4181, 4332-33 (1988).

14

B. California’s Allocation and Use of the JAG Award

15

56. Based on the formula prescribed by statute, California is expected to receive

16 approximately $28.9 million in JAG funding in FY 2018, with $18 million going to the Board of

17 State and Community Corrections (“BSCC”), the entity that receives the formula grant funds that

18 are allocated to the State.

19

57. The BSCC has disbursed JAG funding using subgrants predominately to local

20 jurisdictions throughout California to fund programs that meet the purpose areas identified in the

21 JAG authorizing statute. Between Fiscal Years 2015-17, the BSCC funded 32 local jurisdictions

22 and the California Department of Justice.

23

58. In the past, the BSCC prioritized subgrants to those jurisdictions that focus on

24 education and crime prevention programs, law enforcement programs, and court programs,

25 including indigent defense. Some examples of California jurisdictions’ purpose-driven use of

26 JAG funds include: (a) implementing programs to improve educational outcomes, increase

27 graduation rates, and curb truancy; (b) providing youth and adult gang members with multi-

28 disciplinary education, employment, treatment, and other support services to prevent gang 15
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1 involvement, reduce substance abuse, and curtail delinquency and recidivism; (c) implementing

2 school-wide prevention and intervention initiatives for high-risk students; (d) providing

3 comprehensive post-dispositional advocacy and reentry services to improve outcomes and reduce

4 recidivism for juvenile probationers; (e) providing a continuum of detention alternatives to

5 juvenile offenders who do not require secure detention, which includes assessment, referral, case

6 advocacy, home detention, reporting centers, intensive case management, and wraparound family

7 support services; and (f) funding diversion and re-entry programs for both minors and young

8 adult offenders.

9 IV. DEFENDANTS’ ESCALATING ADDITION OF IMMIGRATION ENFORCEMENT REQUIREMENTS TO JAG
10

A. The Addition of the § 1373 Requirements and Subsequent Actions to

11

Withhold Funding from the State

12

59. In FY 2016, OJP first announced that 8 U.S.C. § 1373 was an “applicable Federal

13 law” under JAG, the compliance of which would be a required condition for grantees receiving

14 JAG funds. Section 1373(a) provides:

15

60. Notwithstanding any other provision of Federal, State, or local law, a Federal, State,

16 or local government entity or official may not prohibit, or in any way restrict, any government

17 entity or official from sending to, or receiving from [federal immigration enforcement authorities]

18 information regarding the citizenship or immigration status, lawful or unlawful, of any individual.

19

61. Section 1373(b) prohibits any “person or agency” from restricting federal, state, or

20 local government entities from “requesting” information regarding a person’s immigration status,

21 “maintaining” such information, or “exchanging” such information with federal, state, or local

22 government entities.

23

62. For FY 2016, OJP required that the BSCC submit a legal opinion validating its

24 compliance with § 1373. On April 21, 2017, OJP sent a letter to the BSCC, as well as eight other

25 jurisdictions nationwide, demanding that it submit that legal opinion.6 On June 29, 2017, the

26 6 Press Release, U.S. Dep’t of Justice, Department of Justice Sends Letter to Nine
27 Jurisdictions Requiring Proof of Compliance with 8 U.S.C. § 1373 (Apr. 21, 2017), https://www.justice.gov/opa/pr/department-justice-sends-letter-nine-jurisdictions-requiring-proof-
28 compliance-8-usc-1373. 16
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1 BSCC submitted the requested legal opinion explaining that the State’s laws, including the

2 TRUST and TRUTH Acts, do not violate § 1373.

3

63. On July 25, 2017, OJP announced the FY 2017 State JAG Solicitation, and on August

4 3, 2017, OJP announced the FY 2017 JAG Local Solicitation. For the first time, the Solicitations

5 required that state and local jurisdictions make the following certifications with respect to § 1373

6 in order to receive a grant or subgrant:

7

 The chief legal officer of the jurisdiction, including the California Attorney General in the

8

case of California, must sign an affidavit certifying compliance with § 1373 on behalf of

9

the State and “any entity, agency, or official” of the State as applicable to the “program or

10

activity” to be funded.

11

 The chief executive officer of the jurisdiction, including the Governor of the State of

12

California, must sign an affidavit making a number of assurances, including that the chief

13

executive adopts the chief legal officer’s certification of compliance with § 1373.

14

 The subrecipients must certify compliance with § 1373, as applicable to the program and

15

award to be funded, and assure that they will comply with all award conditions.

16

64. On August 25, 2017, the BSCC submitted the State’s application for JAG. In that

17 application, the BSCC stated that it “withholds any commitment at this time concerning new

18 grant conditions, pending receipt of the award documents.”

19

65. On November 1, 2017, after the enactment of the Values Act, OJP sent the State a

20 preliminary compliance assessment letter asserting that three provisions of the Values Act may

21 “violate 8 U.S.C. § 1373, depending on how [the State] interprets and applies them.” Those are

22 the provisions regulating: (i) inquiries into an individual’s immigration status (Cal. Gov’t Code §

23 7284.6(a)(1)(A)); (ii) responses to notification requests (id. § 7284.6(a)(1)(C)); and (iii) the

24 sharing of “personal information” (id. § 7284.6(a)(1)(D)). As to the first provision, OJP said that

25 to comply with § 1373, the State must certify that it interprets that provision as “not restrict[ing]

26 California officers and employees from requesting information regarding immigration status from

27 federal immigration officers.” For the notification request and personal information provisions to

28 comply with § 1373, OJP said the State must certify that “it interprets and applies these 17
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1 provisions to not restrict California officers from sharing information regarding immigration

2 status with federal immigration officers, including information regarding release date[s] and

3 home address[es].” If the State cannot so “certify,” then “[USDOJ] has determined that these

4 provisions violate [Section 1373].” OJP further “reserve[d] [its] right to identify additional bases

5 of potential violation of 8 U.S.C. § 1373.”

6

66. On November 13, 2017, the BSCC responded and certified that the Values Act does

7 not restrict law enforcement from inquiring about an individual’s immigration status with other

8 governmental entities. The BSCC could not provide the requested certification as to the other

9 two provisions, and informed OJP that the Values Act regulates the sharing of release date

10 information and home addresses because that information is not covered by § 1373.

11

67. On January 24, 2018, OJP responded that it still has concerns about the State’s

12 compliance with § 1373, and asked the BSCC, and simultaneously, eight other local jurisdictions

13 in California, to produce by February 23, under threat of subpoena, “orders, directives

14 instructions, or guidance to your law enforcement employees” about communicating with

15 USDOJ, the Department of Homeland Security (“DHS”), and ICE.7 The BSCC responded to that

16 letter asserting that it is not a law enforcement agency, so has limited requested documents, but

17 produced the documents that were responsive. In the meantime, the State filed a lawsuit

18 challenging, among other things, the FY 2017 § 1373 Requirement as unconstitutional and

19 unlawful, and seeking a declaration that the State’s laws comply with § 1373. Am. Compl. for

20 Decl. and Inj. Relief, Becerra I (Oct. 13, 2017), ECF No. 11.

21

68. On March 6, 2018, the United States filed a lawsuit against the State of California in

22 the Eastern District of California alleging that the provisions of SB 54 [the Values Act] that

23 regulate compliance with notification requests, restrict the sharing of personal information for

24 immigration enforcement purposes, and limit transfers of individuals to immigration authorities

25 are preempted under federal immigration law, and that the notification request and personal

26 7 Press Release, U.S. Dep’t of Justice, Justice Department Demands Documents and
27 Threatens to Subpoena 23 Jurisdictions As Part of 8 U.S.C. § 1373 Compliance Review (Jan. 24, 2018), https://www.justice.gov/opa/pr/justice-department-demands-documents-and-threatens-
28 subpoena-23-jurisdictions-part-8-usc-1373. 18
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1 information provisions also violate § 1373. See Compl., United States v. California, No. 18-cv-

2 490, ECF No. 1, ¶ 65 (E.D. Cal. Mar. 6, 2018). In its motion to preliminarily enjoin SB 54, the

3 United States argued that these provisions “impede[]” the United States’ enforcement of the

4 immigration laws. Pl.’s Mot. for Prelim. Inj. and Mem. of Law in Supp., United States v.

5 California, No. 18-cv-490, ECF No. 2-1 at 4, 27, 29, 32, 35, 37 (E.D. Cal. Mar. 6, 2018).

6

69. The Eastern District court disagreed. In denying the federal government’s motion to

7 enjoin the Values Act, Judge Mendez concluded that § 1373 does not encompass addresses and

8 release dates, “Section 1373 and the information sharing provisions of SB 54 do not directly

9 conflict,” and SB 54 was not an obstacle to the federal government’s goals because “[s]tanding

10 aside does not equate to standing in the way.” United States v. California, 314 F. Supp. 3d 1077,

11 1104-05 (E.D. Cal. 2018), appeal docketed, No. 18-16496 (9th Cir. Aug. 9, 2018). The court

12 found the constitutionality of § 1373 “highly suspect,” id. at 1101, and “that a Congressional

13 mandate prohibiting states from restricting their law enforcement agencies’ involvement in

14 immigration enforcement activities—apart from, perhaps a narrowly drawn information sharing

15 provision—would likely violate the Tenth Amendment . . . . If Congress lacks the authority to

16 direct state action in this manner, then preemption cannot and should not be used to achieve the

17 same result.” Id. at 1109. The court further dismissed the United States’ claim against the Values

18 Act without leave to amend. Order re: State of California’s Mot. to Dismiss, United States v.

19 California, No. 18-cv-490, ECF No. 197 at 5, 7 (E.D. Cal. July 9, 2018).

20

70. Two other federal courts, when considering challenges to the FY 2017 § 1373 JAG

21 Requirement, declared § 1373 unconstitutional on its face, holding that the statute therefore

22 cannot be an “applicable Federal law” for JAG funding. Chicago, 321 F. Supp. 3d at 868-73;

23 Philadelphia, 309 F. Supp. 3d at 329-31. Recently, this Court likewise determined that § 1373 is

24 unconstitutional on its face, and ordered Defendants to issue FY 2017 JAG awards to the BSCC

25 and all California political subdivisions that applied for JAG. MSJ Order, Becerra I, ECF No.

26 137, slip op. at 23-30. This court also found the § 1373 Requirement to violate the separation of

27 powers, id. at 30-32, the Spending Clause for being insufficiently related to the purpose of JAG

28 and ambiguous in light of Defendants’ “evolving interpretations of the [§ 1373] condition,” id. at 19
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1 32-41, and arbitrary and capricious in violation of the Administrative and Procedure Act. Id. at

2 41-48.

3

B. The Addition of the Access and Notification Requirements to JAG Funding

4

71. In addition to the requirement that jurisdictions certify compliance with § 1373, for

5 the first time in FY 2017, OJP announced two substantive “special conditions” related to federal

6 immigration enforcement. To receive a JAG award, Defendants sought to require jurisdictions to:

7

 permit personnel of DHS to access any correctional or detention facility in order to meet

8

with an “alien” (or an individual believed to be an “alien”) and inquire as to his or her

9

right to be or remain in the United States (the “Access Condition”); and

10

 provide at least 48 hours’ advance notice to DHS regarding the scheduled release date and

11

time of an “alien” in the jurisdiction’s custody when DHS requests such notice in order to

12

take custody of the individual pursuant to the INA (the “Notification Condition”).

13 Defendants later identified what the final award conditions would consist of in court filings,

14 which confirmed the imposition of the Access and Notification Conditions for FY 2017 JAG

15 funding. See, e.g., Becerra I, ECF No. 125-2, ¶ 55(1) (July 31, 2018).

16

72. Paragraph 56 of the represented final conditions sough to impose similar obligations

17 on local government recipients and subrecipients. According to the condition, recipients that

18 disburse funding to subrecipients must “monitor[] subrecipient compliance with the requirements

19 of this condition.” Id. ¶ 55(2).

20

73. This Court concluded that the Access and Notifications Conditions, as well as the FY

21 2017 § 1373 Requirement, violate the separation of powers, the Spending Clause, and the

22 Administrative Procedure Act. MSJ Order, Becerra I, ECF No. 137, slip op. at 17-23, 30-48.

23 Three other federal district courts have determined that the Access and Notification Conditions

24 are unconstitutional because USDOJ exceeded its statutory authority in imposing them. Order

25 Granting Pl.’s Appl. for Prelim. Inj., Los Angeles (Sept. 13, 2018) ECF No. 93, slip op. at 2-4;

26 Chicago, 321 F. Supp. 3d at 874; Philadelphia, 309 F. Supp. 3d at 321. The Seventh Circuit

27 affirmed the district court’s decision to preliminarily enjoin the Access and Notification

28 Conditions. Chicago, 888 F.3d. at 293 (7th Cir. 2018). 20
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1

C. FY 2018 JAG State and Local Solicitations

2

74. On July 20, 2018, Defendants released the FY 2018 JAG Solicitations. The chief

3 legal officer of the jurisdiction must execute two certifications in order for that jurisdiction to

4 receive JAG funding. The first certification is entitled “FY 2018 Certification of Compliance

5 with 8 U.S.C. §§ 1373 & 1644.” As with FY 2017, the first certification requires each grant

6 recipient’s chief legal officer to sign a standard affidavit, affirming compliance with § 1373 on

7 behalf of the State and “any entity, agency, or official” of the State as applicable to the “program

8 or activity to be funded.” Ex. A, Appx. B; Ex. B, Appx. B. Unlike last year, applicants must also

9 submit an answer to the following questions surrounding the jurisdiction’s “Communication with

10 the Department of Homeland Security (DHS) and/or Immigration and Customs Enforcement

11 (ICE)”:

12

 Does your jurisdiction have any laws, policies, or practices related to whether, when, or

13

how employees may communicate with DHS or ICE?

14

 Is your jurisdiction subject to any laws from a superior political entity (e.g., a state law

15

that binds a city) that meets the description in question 1?

16

 If yes to either:

17

o Please provide a copy of each law or policy.

18

o Please describe each practice.

19

o Please explain how the law, policy, or practice complies with section 1373.

20 Ex. A at 27-28; Ex. B at 27-28. A jurisdiction will “not receive award funds (and its award will

21 include a condition that withholds funds) until it submits these responses.” Ex. A at 28; Ex. B at

22 28.8

23

75. In this certification, for the first time this year, the chief legal officer must certify

24 compliance with 8 U.S.C. § 1644. Ex. A, Appx. B; Ex. B, Appx. B. Section 1644 exists in a

25 chapter within the INA for “Restricting Welfare and Public Benefits for Aliens.” Like § 1373, §

26

27 8 For purposes of this action, these required responses are part of the Immigration
28 Enforcement Requirements that California is challenging. 21
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1 1644 prohibits state and local governments from restricting the “sending to or receiving” from

2 immigration authorities “information regarding the immigration status” of “an alien.”

3

76. Also, for the first time this year, Defendants require that the chief legal officer

4 separately execute a second certification entitled relating to 8 U.S.C. §§ 1226(a) & (c),

5 1231(a)(4), 1324(a), 1357(a), & 1366(1) & (3). Ex. A, Appx. C; Ex. B, Appx. C. As of October

6 25, 2018, Defendants revised this certification from the one identified in the JAG Solicitations,

7 and is now entitled “State or Local Government: FY 2018 Certification Relating to 8 U.S.C. §§

8 1226(a) & (c), 1231(a), 1324(a), 1357(a), & 1366(1) & (3).”9

9

77. In this second certification, Defendants replace the Access Condition that has been

10 struck down by the courts with a requirement that the chief legal officer certify that the

11 jurisdiction does not have in effect or is bound to any law, rule, policy, or practice, applicable to

12 the “program or activity” to be funded, which “impede the exercise by federal officers of

13 authority under 8 U.S.C. § 1357(a).” Ex. A, Appx. C; Ex. B, Appx. C; Ex. D ¶ 6. The

14 certification describes § 1357(a) as providing authority to immigration officers to “interrogate any

15 alien or person believed to be an alien as to his right to be or to remain in the United States.” Ex.

16 A, Appx. C; Ex. B, Appx. C; Ex. D ¶ 2(d). The JAG Solicitations describe the certification as

17 “requiring . . . recipients to permit DHS agents to have access to any correctional facility in order

18 to meet with an alien (or an individual believed to be an alien) and inquire as to his right to be or

19 remain in the United States.” Ex. A at 37; Ex. B at 37.

20

78. In addition, in this second certification, Defendants replace the Notification Condition

21 that has been struck down by the courts with a requirement that the chief legal officer certify that

22 the jurisdiction does not have in effect or is bound to any law, rule, policy, or practice, applicable

23 to the “program or activity” to be funded, which “impede[s] the exercise by federal officers of

24 authority relating to 8 U.S.C. § 1226(a) & (c).” Ex. A, Appx. C; Ex. B, Appx. C; Ex. D ¶ 6.

25 Section 1226 directs the U.S. Attorney General to take custody of inadmissible and deportable

26 9 U.S. Dep’t of Justice, OJP, State or Local Government: FY 2018 Certification Relating
27 to 8 U.S.C. §§ 1226(a) & (c), 1231(a), 1324(a), 1357(a), & 1366(1) & (3), https://ojp.gov/funding/Explore/pdf/FY18JAG_STATE_VARIOUS_Rev1025.pdf (attached as
28 Ex. D). 22
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1 persons after they have committed certain offenses or have been sentenced to a term of

2 imprisonment. The certification also identifies 8 U.S.C. § 1231(a)(4), which the certification

3 represents as limiting the federal government from “remov[ing] an alien who is sentenced to

4 imprisonment until the alien is released from imprisonment.” Ex. A, Appx. C; Ex. B, Appx. C;

5 Ex. D ¶ 2(b). The JAG Solicitations describe the certification as “requiring . . . recipients to

6 provide (where feasible) at least 48 hours’ advance notice to DHS regarding the scheduled release

7 date and time of an alien in the recipient’s custody when DHS requests such notice in order to

8 take custody of the alien pursuant to the Immigration and Nationality Act.” Ex. A at 37; Ex. B at

9 36-37.10

10

79. That second certification requires that the chief legal officer certify for the first time

11 that the jurisdiction does not have in effect or is bound to any law, rule, policy, or practice,

12 applicable to the “program or activity” to be funded,” which “impede[s] the exercise by federal

13 officers of authority relating to 8 U.S.C. § 1366(1) & (3).” Ex. A, Appx. C; Ex. B, Appx. C; Ex.

14 D ¶ 6. The 8 U.S.C. § 1366 certification requirement is not described anywhere else in the JAG

15 Solicitations, and Defendants do not explain why they are adding this statute as an “applicable

16 law.” The Certification describes § 1366 as “requiring the Attorney General annually to submit

17 to Congress ‘a report detailing . . . (1) the number of illegal aliens incarcerated in Federal and

18 State prisons for having committed felonies, stating the number incarcerated for each type of

19 offense, [and] (3) programs and plans underway in the Department of Justice to ensure the prompt

20 removal from the United States of criminal aliens subject to removal.’” Ex. A, Appx. C; Ex. B,

21 Appx. C; Ex. D ¶ 2(e).

22

80. That second certification further requires that the chief legal officer certify that he

23 understands that the JAG award requires recipient states and local governments, with respect to

24 any “program or activity” funded, “not to publicly disclose federal law enforcement information

25 in an attempt to conceal, harbor, or shield certain individuals from detection, whether or not in

26 violation of 8 U.S.C. § 1324(a) or other laws.” Ex. D ¶ 3. The certification describes § 1324(a)

27

10 The JAG Solicitations identify “8 U.S.C. § 1266(a) & (c)” on this page, but since that

law does not exist, and does not appear anywhere else in the Solicitations, California presumes 28 that Defendants meant to cite to 8 U.S.C. § 1226 here instead.

23

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1 as “forbidding the concealing, harboring, or shielding from detection of aliens illegally in the

2 United States.” Id. ¶ 2(c).

3

81. Section 1324(a) does not apply to states. The INA defines “person” as an

4 “individual” or an “organization.” 8 U.S.C. § 1101(b)(3). A “State” is defined separately in 8

5 U.S.C. § 1101(a)(36), and the term “State” is not in any way part of 8 U.S.C. § 1324(a).

6

82. The chief executive of the applicant government, identified as the governor for states,

7 must execute a separate certification acknowledging that the chief executive examined the

8 Certification of Compliance with 8 U.S.C. §§ 1373 & 1644 and the State or Local Government:

9 FY 2018 Certification Relating to 8 U.S.C. §§ 1226(a) & (c), 1231(a), 1324(a), 1357(a), &

10 1366(1) & (3), and “adopt th[e] certification[s] as my own on behalf of that government.” Ex. A,

11 Appx. A; Ex. B, Appx. A.

12

83. The JAG State Solicitation provides that “in order to validly accept a fiscal year (FY)

13 2018 JAG award, the chief legal officer of the applicant state must properly execute, and the state

14 must submit, the specific certifications regarding compliance with certain federal laws attached to

15 this solicitation as Appendix B and Appendix C.” Ex. A at 1, 18, 27, 35-36. The same applies to

16 local governments. Ex. B at 1, 18, 27, 35. State recipients are required to collect these

17 certifications from all subrecipients. Ex. A at 24.

18

84. Underneath the FY 2018 JAG Solicitations on the OJP website, there is a link to

19 Frequently Asked Questions with respect to the § 1373 Certification.11 These represent that the

20 certification “must be signed by the jurisdiction’s chief legal officer, who may not delegate,

21 assign, or designate the task to another.”12 The document states that the “State ‘Attorney

22 General’ typically will be the title of the chief legal officer.” Id. No. 8.

23

85. Defendants have provided no explanation as to how the new Immigration

24 Enforcement Requirements are consistent with Congress’s intent in adopting and authorizing

25 funds for JAG.

26

11 See Office of Justice Programs, BJA Edward Byrne Memorial Justice Assistance Grant

Program, https://www.bja.gov/jag/.

27

12 Bureau of Justice Assistance, Questions & Answers on Specific Requirements related to

Criminal Alien Law Enforcement for Fiscal Years 2017 and 2018 OJP Grant Programs, Nos. 8 & 28 10, https://www.bja.gov/publications/8U.S.C.1373QuestionsandAnswers.pdf.

24

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1

86. On August 21, 2018, the BSCC submitted a FY 2018 JAG application. As part of

2 that application, the BSCC was required to certify compliance that “the Applicant will comply

3 with . . . all federal statutes and regulations applicable to the award” and that it will “require all

4 subrecipients to comply with all applicable award requirements and all applicable federal statutes

5 and regulations.” OJP informed the BSCC that it had to make that certification at the time of

6 application. In a supplemental document submitted with its application, the BSCC stated that it

7 would so certify as to any laws that were lawfully identified as applicable laws. But the BSCC

8 disavowed the inclusion of the new Immigration Enforcement Requirements, and asserted that it

9 was not making any “certifications or assurances about any federal statutes that have been

10 selected by the Office of Justice Programs (OJP) as ‘applicable’ to the JAG program and imposed

11 unlawfully.” The BSCC continued that it “does not agree to comply with any other unlawfully

12 imposed award conditions or requirements.”

13

D. Defendants’ Issuance of FY 2018 JAG Awards to Most Jurisdictions in the

United States, but not California 14

87. On or about October 1, 2018 Defendants released FY 2018 JAG awards to state and

15

local jurisdictions throughout the United States. Defendants issued JAG awards to 46 states and

16

the District of Columbia, American Samoa, Guam, Northern Mariana Islands, Puerto Rico, and

17

the Virgin Islands. Defendants also issued 752 JAG awards to local jurisdictions throughout the

18

country. However, Plaintiff is not aware of any California state or local jurisdiction that has

19

received a FY 2018 JAG Award as of the date of this filing.

20

88. The FY 2018 JAG Awards formalize the requirements described in the JAG

21

Solicitations. Paragraphs 41-43 describe the §§ 1373 and 1644 Requirements. In addition to

22

completing the §§ 1373 and 1644 certifications, the grant recipient for the state must obtain a

23

certification of compliance with §§ 1373 and 1644 from any subgrantees before issuing an award.

24

Ex. C ¶ 42(2). The grant recipient must also monitor each JAG subgrantee’s compliance with the

25

§§ 1373 and 1644 Requirements. Id. ¶ 43(1)(D). These requirements are similar to the FY 2017

26

JAG § 1373 Requirement that this Court, and other courts throughout the country, found to be

27

unconstitutional and unlawful. Compare id. ¶¶ 41-43 with Becerra I, ECF No. 125-2, ¶¶ 52-54

28

25

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1 (July 31, 2018). And all governmental grant recipients and subrecipients must submit responses

2 to the “Information regarding Communications with the Department of Homeland Security

3 (DHS) and/or Immigration and Customs Enforcement (ICE)” questions identified in the JAG

4 Solicitations. Ex. C ¶ 47.

5

89. Paragraph 44 of the FY 2018 JAG award describes the § 1324 Requirement, which

6 provides:

Consistent with the purposes and objectives of federal law enforcement statutes and

7

federal criminal law (including 8 U.S.C. 1324 and 18 U.S.C. chs. 1, 49, 227), no

8

public disclosure may be made of any federal law enforcement information in a direct

or indirect attempt to conceal, harbor, or shield from detection any fugitive from

9

justice under 18 U.S.C. ch. 49, or any alien who has come to, entered, or remains in

the United States in violation of 8 U.S.C. ch. 12 – without regard to whether such

10

disclosure would constitute (or could form a predicate for) a violation of 18 U.S.C.

11

1071 or 1072 or of 8 U.S.C. 1324(a).

Id. ¶ 44(1). 12

90. Grantees and subgrantees must comply with the § 1324 Requirement with respect to 13

the program or activity to be funded. Id. Defendants broadly define “federal law enforcement 14

information” within the Requirement to include “records or information complied for any law 15

enforcement purpose” from the federal government to a State or local government submitted 16

through any means including: “(1) through any database; (2) in connection with any law 17

enforcement partnership or task-force; (3) in connection with any request for law enforcement 18

assistance or –cooperation; or (4) through any deconfliction (or courtesy) notice of planned, 19

imminent, commencing, continuing, or impending federal law enforcement activity.” Id. ¶ 20

44(4)(A)(2). The “public disclosure” prohibited by the Requirement includes any communication 21

to a recipient or subrecipient that is not a government agency. Id. ¶ 44(4)(A)(4). 22

The § 1324 Requirement does not describe what constitutes “a direct or indirect attempt to 23

conceal, harbor, or shield from detection” a non-citizen, making it unclear what conduct the 24

Requirement prohibits. 25

91. Paragraph 45 describes the FY 2018 Access Requirement, which Defendants claim 26

is consistent with 8 U.S.C. § 1357(a) and 8 C.F.R. § 287.5(a). That requirement prohibits any 27

recipient or subrecipient State or local governmental entity, agency, or official, with respect to the 28

26

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1 “program or activity” to be funded, from “interfer[ing]” with immigration authorities “by

2 impeding access to any State or local government (or government-contracted correctional facility

3 by such agents for the purposes [of] ‘interrogat[ing] any alien or person believed to be an alien as

4 to his [or her] right to be or to remain in the United States.’” Ex. C ¶ 45(1). This requirement is

5 similar to the FY 2017 JAG Access Condition that this Court, and other courts throughout the

6 country, found to be unconstitutional and unlawful. Compare id. ¶ 45 with Becerra I, ECF No.

7 125-2, ¶¶ 55-56 (July 31, 2018). This year, Defendants define “impeding” as preventing any state

8 or local government from “taking or continuing any action, or implementing or maintaining any

9 law, policy, rule, or practice, that- (a) is designed to prevent or to significantly delay or

10 complicate, or (b) has the effect of preventing or of significantly delaying or complicating”

11 immigration authorities’ access to detention facilities. Id. ¶ 45(4)(A)(3). Although the TRUTH

12 Act does not deny immigration authorities’ access to detention facilities, it requires LEAs to

13 provide a consent form to an inmate to sign prior to an interview with immigration authorities.

14 See Cal. Gov’t Code § 7283.1(a). It is unclear whether Defendants interpret the FY 2018 Access

15 Requirement as prohibiting jurisdictions from informing inmates of their rights prior to an ICE

16 interview, as required under the TRUTH Act.

17

92. Paragraph 46 describes the FY 2018 Notification Requirement, which Defendants

18 claim is consistent with 8 U.S.C. §§ 1226, 1231, and 1366. That requirement prohibits any

19 recipient or subrecipient State or local governmental entity, agency, or official, with respect to the

20 “program or activity” to be funded, from “interfere[ing]” with immigration authorities “by failing

21 to provide – as early as practicable (see para. 4.C. below) – advance notice to DHS of the

22 scheduled release date and time for a particular alien, if a State or local government (or

23 government-contracted) correctional facility receives from DHS a formal written request pursuant

24 to the INA that seeks such advance notice.” Ex. C ¶ 46(1). This requirement is similar to the FY

25 2017 JAG Notification Condition that this Court, and other courts throughout the country, found

26 to be unconstitutional and unlawful. Compare id. ¶ 46 with Becerra I, ECF No. 125-2, ¶¶ 55-56

27 (July 31, 2018). The Values Act provides LEA discretion to comply with immigration

28 authorities’ notification requests under enumerated circumstances, but does not require the 27
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1 provision of release dates, as Defendants ostensibly seek through this requirement. See Cal.

2 Gov’t Code § 7284.6(a)(1)(C).

3

93. Defendants have updated the certifications to mirror the FY 2018 JAG Award

4 requirements. The chief legal officer of the grant recipient’s jurisdiction now must certify the

5 following after conducing a “diligent inquiry”:

6

As of the date of this certification, neither the jurisdiction nor any entity, agency, or

7

official of the jurisdiction has in effect, purports to have in effect, or is subject to or bound by, any law, rule, policy, or practice that would apply to the “program or

8

activity” to be funded in whole or in part under the FY 2018 OJP Program . . . and

that would or does – (a) impede the exercise by federal officers of authority under 8

9

U.S.C. § 1357(a); or (b) impede the exercise by federal officers of authority relating

to 8 U.S.C. § 1226(a) or (c), 8 U.S.C. § 1231(a), or 8 U.S.C. § 1366(1) or (3). 10

Ex. D ¶ 6. 11

94. The FY 2018 JAG Award admonishes recipients that: 12

13

Any materially false, fictitious, or fraudulent statement to the federal government

related to the award (or concealment or omission of a material fact) may be the subject

14

of criminal prosecution (including under 18 U.S.C. 1001 and/or 1621, and/or 34

U.S.C. 10271-10273), and also may lead to imposition of civil penalties and

15

administrative remedies for false claims or otherwise (including those under 31 U.S.C.

3729-3730 and 3801-3812). 16

17 Ex. C ¶ 1.

18

V.

THE IMMIGRATION ENFORCEMENT REQUIREMENTS ARE UNCONSTITUTIONAL AND UNLAWFUL

19

95. JAG’s authorizing statute provides no authority for OJP to impose the Immigration

20 Enforcement Requirements. Interpreting OJP’s authority to permit it to impose these substantive

21 conditions with respect to formula grants, like JAG, beyond what is allowed under federal law

22 conflicts with congressional intent in establishing a prescribed formula grant structure. Congress

23 designed JAG so that “each State” receives an allocation according to a precise statutory formula.

24 34 U.S.C. § 10156(a) (emphasis added). Likewise, Congress’s formula provides allocation to

25 “each unit of local government.” Id. § 10156(d)(2) (emphasis added). As such, if USDOJ makes

26 grants from funds that Congress appropriated to JAG, OJP must disburse the funds according to

27

28 28
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1 the statutory formula enacted by Congress so long as the jurisdiction complies with the conditions

2 that exist in federal law.

3

96. The Immigration Enforcement Requirements are also contrary to congressional intent

4 as immigration enforcement has never been a purpose area for JAG funding, and Congress has

5 repeatedly rejected numerous attempts to attach immigration enforcement requirements to receipt

6 of JAG funding.

7

97. Defendants claim that all of the statutes identified in the certification are “applicable

8 Federal laws” that applicants must comply with under 34 U.S.C. § 10153(a)(5) in the JAG

9 authorizing statute. See Ex. A at 10; Ex. B. at 10. The JAG authorizing statute does not permit

10 Defendants to add these statutes as “applicable Federal laws.”

11

98. 8 U.S.C. §§ 1373 and 1644 cannot be “applicable Federal laws” because they are

12 unconstitutional under the Tenth Amendment’s anti-commandeering doctrine, and thus,

13 Defendants lack the statutory authority to identify those statutes as “applicable laws.”

14

99. 8 U.S.C. §§ 1226, 1231, 1357, and 1366 are not “applicable Federal laws” as they are

15 not laws that are applicable to applicant state and local jurisdictions. These laws only impose

16 obligations on the federal government. In addition, 8 U.S.C. § 1324 only applies to individuals

17 and organizations, not to state and local jurisdictions.

18

100. None of the federal laws identified in the certifications are “applicable” because the

19 term “other applicable Federal laws” is best understood as referring to laws that are expressly

20 connected to federal grant-making. Prior to 2016, the only laws that USDOJ identified as

21 “applicable” were those that specifically address the administration of federal funding in the text

22 of the statute. There is no provision in the INA, or any federal law, that requires jurisdictions to

23 assist with otherwise voluntary immigration enforcement related activities in order to receive

24 these federal funds.

25

101. Defendants exceed their statutory authority by adding Immigration Enforcement

26 Requirements as purported “applicable Federal laws” that cannot be constitutionally applied to

27 California’s laws under the anti-commandeering doctrine. Defendants exceed their statutory

28 authority by interpreting statutes such as 8 U.S.C. §§ 1226, 1231, and 1357, as requiring state and 29
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Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 31 of 40

1 local jurisdictions to comply with notification requests or allowing immigration authorities access

2 to detention facilities, although those statutes impose no requirements on state and local

3 jurisdictions.

4

102. Defendants also cannot rely on OJP’s authority to add “special conditions on all

5 grants,” 34 U.S.C. § 10102(a)(6), as a basis for adding the Immigration Enforcement

6 Requirements. In 2006, when this provision was amended to create its current language, the term

7 “special conditions” had a precise meaning. According to a USDOJ regulation in place at the

8 time, the agency could impose “special grant or subgrant conditions” on “high-risk grantees” if

9 the grant applicant: (a) had a history of poor performance; (b) was not financially stable; (c) had a

10 management system that did not meet certain federal standards; (d) had not conformed to the

11 terms and conditions of a previous grant award; or (e) was not otherwise responsible. 28 C.F.R. §

12 66.12 (removed December 25, 2014).

13

103. These Immigration Enforcement Requirements are further undercut by 34 U.S.C. §

14 10228(a), which is codified in the same chapter as the JAG authorizing statute, and prohibits the

15 use of federal law enforcement grants to exercise “any direction, supervision, or control over any

16 police force or any other criminal justice agency of any State or any political subdivision

17 thereof.”

18 VI. THE IMPOSITION OF THE IMMIGRATION ENFORCEMENT REQUIREMENTS CREATES IRREPARABLE HARM TO THE STATE AND ITS LOCAL JURISDICTIONS
19 104. The Immigration Enforcement Requirements mean that the State and its local
20 jurisdictions will have to decide whether they can or should accept federal funds for their law
21 enforcement agencies that are subject to unlawful and unconstitutional requirements. If the State
22 and its local jurisdictions cannot accept the awards, or if Defendants withhold funding from the
23 State on the basis of these requirements, the State will lose $28.9 million in critical funds that
24 would otherwise go toward programs throughout the State that reduce recidivism for at-risk
25 youth, counter the distribution of illegal drugs, advance community policing, and improve
26 educational outcomes.
27

28 30
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1

105. It is likely that in order for the State and many of its localities to accept the funding,

2 they will have to change their public safety oriented laws and policies in order to ensure they are

3 viewed as complying with the Immigration Enforcement Requirements and Defendants’

4 erroneous view of § 1373. Abandoning these policies that law enforcement has found to be

5 effective in their communities would divert resources away from fighting crime and erode trust

6 between the State and local governments and their immigrant communities that the TRUST,

7 TRUTH, and Values Acts, as well as local ordinances, are intended to build.

8

106. California and its local jurisdictions must make their decision about whether to accept

9 these law enforcement funds under the shadow of the federal government’s actions that they have

10 already taken and threats they have made against California on the basis of the State’s laws. In

11 addition to suing the State for adopting laws that the United States alleges “impede” immigration

12 authorities, after the Values Act went into effect, then-ICE Acting Director Thomas Homan called

13 for USDOJ to “charge” elected officials for jurisdictions with policies like California for violating

14 8 U.S.C. § 1324(a) if they do not meet the Administration’s immigration enforcement demands.13

15 The DHS Secretary Kirstjen Nielsen later confirmed in congressional testimony that USDOJ was

16 “reviewing” ways to charge state and local official as Acting Director Homan suggested. By

17 trying to make § 1324(a) an “applicable Federal law” through the Immigration Enforcement

18 Requirements, and imposing the § 1324 Requirement as a condition for funding, Defendants are

19 unlawfully attempting to force elected officials to make representations, under the threat of

20 criminal prosecutions, about that federal statute.

21

107. The State should not be faced with this Hobson’s Choice of agreeing to these

22 unconstitutional Immigration Enforcement Requirements and facing a certain enforcement action,

23 or not agreeing to these Requirements and losing critical public safety dollars to the detriment of

24 the State’s communities. Defendants’ scheme undermines public safety, is unconstitutional, and

25 should be halted.

26 13 Fox News Interview with Thomas Homan, Acting ICE director: California made a
27 foolish decision (Jan. 2, 2018), http://www.foxnews.com/transcript/2018/01/02/acting-icedirector-california-made-foolish-decision.html.
28
31
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1

FIRST CLAIM FOR RELIEF

2

VIOLATION OF CONSTITUTIONAL SEPARATION OF POWERS

3

108. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

4

109. Article I, Section I of the United States Constitution enumerates that “[a]ll legislative

5 Powers herein granted shall be vested in [the] Congress.”

6

110. Article I, Section VIII of the United States Constitution vests exclusively in Congress

7 the spending power to “provide for . . . the General Welfare of the United States.”

8

111. Defendants have exceeded congressional authority by adding substantive Immigration

9 Enforcement Requirements that are not conferred by the JAG authorizing statute or any other

10 federal law. See 34 U.S.C. §§ 10151-58. The Immigration Enforcement Requirements therefore

11 unlawfully exceed the Executive Branch’s powers and intrude upon the powers of Congress.

12

112. For the reasons stated herein, the Immigration Enforcement Requirements are

13 unlawful, unconstitutional, and should be set aside under 28 U.S.C. § 2201. Additionally,

14 Plaintiff is entitled to a writ of mandamus under 28 U.S.C. § 1361 to compel Defendants to issue

15 California’s FY 2018 JAG award without the Immigration Enforcement Requirements, and

16 disbursal of California’s FY 2018 JAG funds, in accordance with the formula in the JAG

17 authorizing statute.

18

SECOND CLAIM FOR RELIEF

19

ULTRA VIRES

20

113. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

21

114. An agency acts ultra vires when it exceeds its statutory authority conferred by

22 Congress.

23

115. None of the identified laws in the Immigration Enforcement Requirements are

24 “applicable Federal laws” within the meaning of the JAG authorizing statute because they do not

25 govern by their express terms the administration of federal funding.

26

116. Additionally, 8 U.S.C. §§ 1226, 1231, 1324, 1357, and 1366 cannot be applicable

27 laws for applicants to JAG funding because these laws impose no obligations on state and local

28 jurisdictions. 32
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1

117. Alternatively, even if these statutes were deemed to be “applicable Federal laws,”

2 Defendants exceed their authority under the JAG authorizing statute by imposing requirements on

3 state and local governments that are not found in these federal statutes. For example, Defendants

4 seek to “require[] . . . recipients to provide (where feasible) at least 48 hours’ notice to DHS

5 regarding the scheduled release date and time of an alien in the recipient’s custody when DHS

6 requests such notice in order to take custody of the alien pursuant to the Immigration and

7 Nationality Act,” although there is no such requirement in federal law. Similarly, Defendants

8 “requir[e] . . . recipients to permit DHS agents to have access to any correctional facility in order

9 to meet with an alien (or an individual believed to be an alien) and inquire as to his right to be or

10 remain in the United States,” which again is not a requirement that exists in federal law.

11

118. Furthermore, Defendants have identified no separate statutory authority that would

12 justify imposing the Immigration Enforcement Requirements.

13

119. For the reasons stated herein, the Immigration Enforcement Requirements are ultra

14 vires, and should be set aside under 28 U.S.C. § 2201. Additionally, Plaintiff is entitled to a writ

15 of mandamus under 28 U.S.C. § 1361 to compel Defendants to issue California’s FY 2018 JAG

16 award without the Immigration Enforcement Requirements, and disbursal of California’s FY

17 2018 JAG funds, in accordance with the formula in the JAG authorizing statute.

18

THIRD CLAIM FOR RELIEF

19

ULTRA VIRES/ANTI-COMMANDEERING

20

(The §§ 1226, 1231, 1357, 1366, 1373, and 1644 Immigration Enforcement Requirements Cannot be Constitutionally Applied to California’s Laws under the Tenth Amendment of

21

the U.S. Constitution)

22

120. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

23

121. Defendants’ basis for adding the Immigration Enforcement Requirements are that

24 they are premised on being “applicable Federal laws.” If the laws identified in the Immigration

25 Enforcement Requirements are “applicable Federal laws,” then the breadth of what Congress

26 permitted Defendants to condition funding on is confined to what the “applicable laws” require or

27 prohibit, as limited by the Tenth Amendment, and nothing more.

28 33
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1

122. The Tenth Amendment prohibits the federal government from requiring states and

2 localities “to govern according to Congress’s instructions,” New York v. United States, 505 U.S.

3 144, 162 (1992), or “command[ing] the State’s officers . . . to administer or enforce a federal

4 regulatory program.” Printz v. United States, 521 U.S. 898, 935 (1997). Specifically, where the

5 “whole object” of a provision of a federal statute is to “direct the functioning” of state and local

6 governments, that provision is unconstitutional. Id. at 932.

7

123. The Tenth Amendment guarantees that states have a “legitimate choice” to “decline

8 to administer the federal program.” New York, 505 U.S. at 177, 185. Prohibitions that

9 “unequivocally dictate[] what a state legislature may and may not do” violate the anti-

10 commandeering doctrine as much as affirmative commands. Murphy v. NCAA, 138 S. Ct. 1461,

11 1478 (2018).

12

124. Two of the laws that are part of the Immigration Enforcement Requirements, 8 U.S.C.

13 §§ 1373 and 1644, violate the Tenth Amendment on their face or as applied under Defendants’

14 interpretation of them. Therefore, those laws are invalid and cannot be identified as “applicable

15 Federal laws.” See Chicago, 2018 WL 3608564, at 7-11; Philadelphia, 309 F. Supp. 3d at 329-

16 31.

17

125. In United States v. California, the United States has already made clear its view that

18 the Values and TRUST Acts “impede” immigration authorities, which would run afoul of the

19 Immigration Enforcement Requirements. As was found in that case, an interpretation of federal

20 law that “prohibit[s] states from restricting their law enforcement agencies’ involvement in

21 immigration activities—apart from, perhaps, a narrowly drawn information sharing provision—

22 would likely violate the Tenth Amendment.” California, 314 F. Supp. 3d at 1109.

23

126. Pursuant to 28 U.S.C. § 2201, Plaintiff is entitled to a declaration that Defendants do

24 not possess the statutory authority to apply the §§ 1226, 1231, 1357, 1366, 1373, and 1644

25 Immigration Enforcement Requirements as to the TRUST, TRUTH, and Values Acts, as to do so,

26 Defendants would be applying federal law in a manner that violates the Tenth Amendment of the

27 Constitution. Defendants’ statutory authority to use funding conditions to commandeer the State

28 is also limited by 34 U.S.C. § 10228(a), which prohibits the use of federal law enforcement grants 34
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1 to exercise “any direction, supervision, or control over any police force or any other criminal

2 justice agency.”

3

127. For the reasons stated herein, the §§ 1226, 1231, 1357, 1366, 1373, and 1644

4 Immigration Enforcement Requirements in the JAG Solicitations are ultra vires, and should be set

5 aside, or alternatively, should be set aside as to California and its local jurisdictions.

6 Additionally, Plaintiff is entitled to a writ of mandamus under 28 U.S.C. § 1361 to compel

7 Defendants to issue California’s FY 2018 JAG award without the Immigration Enforcement

8 Requirements, and disbursal of California’s FY 2018 JAG funds, in accordance with the formula

9 in the JAG authorizing statute.

10

FOURTH CLAIM FOR RELIEF

11

SPENDING CLAUSE

12

128. Plaintiff incorporates the allegations of the preceding paragraphs by reference.

13

129. Congress’ spending power is not unlimited. When “Congress desires to condition the

14 States’ receipt of federal funds,” it must do so (a) “unambiguously . . ., enabl[ing] the States to

15 exercise their choice knowingly, cognizant of the consequences of their participation;” and (b) by

16 placing conditions that are related “to the federal interest in particular national projects or

17 programs.” South Dakota v. Dole, 483 U.S. 203, 207 (1987) (citation omitted).

18

130. To the extent that Congress delegated its authority to impose conditions on JAG

19 funding (which Plaintiff does not concede), the Immigration Enforcement Requirements violate

20 the Spending Clause of the U.S. Constitution. The Immigration Enforcement Requirements are

21 unrelated to the “federal interest in particular national projects or programs” for which Congress

22 intended JAG funding to be used.

23

131. The Immigration Enforcement Requirements also violate the Spending Clause

24 because they are ambiguous and do not provide the State and local jurisdictions with notice to

25 make a “choice knowingly” of whether to comply.

26

132. For the reasons stated herein, the Immigration Enforcement Requirements are

27 unlawful, and should be set aside under 28 U.S.C. § 2201. Additionally, Plaintiff is entitled to a

28 writ of mandamus under 28 U.S.C. § 1361 to compel Defendants to issue California’s FY 2018 35
First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 37 of 40

1 JAG award without the Immigration Enforcement Requirements, and disbursal of California’s FY

2 2018 JAG funds, in accordance with the formula in the JAG authorizing statute.

3

FIFTH CLAIM FOR RELIEF

4

VIOLATION OF ADMINISTRATIVE PROCEDURE ACT

5

(Constitutional Violations and Excess of Statutory Authority)

133. Plaintiff incorporates the allegations of the preceding paragraphs by reference. 6

134. Defendant USDOJ is an “agency” under the APA, 5 U.S.C. § 551(1), and the 7

imposition of the Immigration Enforcement Requirements is an “agency action” under the APA, 8

id. § 551(13). 9

135. The imposition of the Immigration Enforcement Requirements constitutes an 10

“[a]gency action made reviewable by statute and final agency action for which there is no other 11

adequate remedy in a court.” Id. § 704. 12

136. The APA requires that a court “hold unlawful and set aside agency action, findings, 13

and conclusions found to be . . . contrary to constitutional right, power, privilege, or immunity,” 14

or “in excess of statutory jurisdiction, authority, or limitations, or short of statutory right.” Id. § 15

706(2)(B)-(C). 16

137. Defendants’ imposition of the Immigration Enforcement Requirements is 17

unconstitutional because Defendants overstepped their powers by exercising lawmaking authority 18

that is solely reserved to Congress under Article I, Section I of the U.S. Constitution. Also, 19

Defendants’ imposition of the Immigration Enforcement Requirements was ultra vires in excess 20

of their statutory authority. Furthermore, the Immigration Enforcement Requirements violate the 21

Spending Clause because they are unrelated to the federal purpose of the grant and/or are 22

ambiguous. 23

138. Because Defendants acted unconstitutionally and in excess of their statutory authority 24

in the imposition of the Immigration Enforcement Requirements, these actions are unlawful and 25

should be set aside under 5 U.S.C. § 706. Additionally, Plaintiff is entitled to a writ of mandamus 26

under 28 U.S.C. § 1361 to compel Defendants to issue California’s FY 2018 JAG award without 27

28 36
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Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 38 of 40

1 the Immigration Enforcement Requirements, and disbursal of California’s FY 2018 JAG funds, in

2 accordance with the formula in the JAG authorizing statute.

3

SIXTH CLAIM FOR RELIEF

4

VIOLATION OF ADMINISTRATIVE PROCEDURE ACT

5

(Arbitrary and Capricious)

139. Plaintiff incorporates the allegations of the preceding paragraphs by reference. 6

140. Defendant USDOJ is an “agency” under the APA, 5 U.S.C. § 551(1), and the 7

imposition of the Immigration Enforcement Requirements is an “agency action” under the APA, 8

id. § 551(13). 9

141. The imposition of the Immigration Enforcement Requirements constitutes an 10

“[a]gency action made reviewable by statute and final agency action for which there is no other 11

adequate remedy in a court.” Id. § 704. 12

142. The APA requires that a court “hold unlawful and set aside agency action, findings, 13

and conclusions found to be . . . arbitrary, capricious, an abuse of discretion, or otherwise not in 14

accordance with law.” Id. § 706(2)(A). 15

143. The imposition of the Immigration Enforcement Requirements is arbitrary and 16

capricious and an abuse of discretion because Defendants have relied on factors that Congress did 17

not intend, failed to consider an important aspect of the program the agency is addressing, and has 18

offered no explanation for adding the Immigration Enforcement Requirements that is consistent 19

with the evidence that is before the agency. See Motor Vehicle Mfrs. Ass’n of the U.S. v. State 20

Farm Mut. Auto Ins. Co., 463 U.S. 29, 43 (1983). 21

144. For the reasons discussed herein, the Immigration Enforcement Requirements are 22

unlawful and should be set aside under 5 U.S.C. § 706 for being arbitrary and capricious and an 23

abuse of discretion. Additionally, Plaintiff is entitled to a writ of mandamus under 28 U.S.C. § 24

1361 to compel Defendants to issue California’s FY 2018 JAG award without the Immigration 25

Enforcement Requirements, and disbursal of California’s FY 2018 JAG funds, in accordance with 26

the formula in the JAG authorizing statute. 27

28 37
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1

PRAYER FOR RELIEF

2

WHEREFORE, Plaintiff, the State of California, respectfully requests that this Court enter

3 judgment in its favor, and grant the following relief:

4

1. Issue a declaration that the Immigration Enforcement Requirements are

5 unconstitutional and/or unlawful because: (a) they violate the separation of powers; (b) they

6 exceed congressional authority conferred to the Executive Branch and are ultra vires on their face

7 and as applied to the TRUST, TRUTH, and Values Acts; (c) to the extent there is congressional

8 authority, they exceed Congress’s spending powers under Article I of the Constitution; and/or (d)

9 they violate the Administrative Procedure Act;

10

2. Permanently enjoin Defendants from using the Immigration Enforcement

11 Requirements;

12

3. Permanently enjoin Defendants from withholding and terminating JAG funding, or

13 disbarring and making any state entity or local jurisdiction ineligible for JAG funding on account

14 of the TRUST, TRUTH, and Values Acts;

15

4. Issue a writ of mandamus compelling Defendants to issue California and its political

16 subdivisions’ FY 2018 JAG awards without the Immigration Enforcement Requirements, and

17 disbursal of California and its political subdivisions’ FY 2018 JAG funds;

18

5. Award attorney’s fees and costs as appropriate; and

19

6. Grant such other relief as the Court may deem just and proper.

20

21

22

23

24

25

26

27

28 38
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Case 3:18-cv-05169-WHO Document 20 Filed 11/01/18 Page 40 of 40

1 Dated: November 1, 2018

Respectfully Submitted,

2

XAVIER BECERRA

Attorney General of California

3

MICHAEL NEWMAN

Senior Assistant Attorney General

4

SARAH E. BELTON

Supervising Deputy Attorney General

5

CHEROKEE DM MELTON

6

/s/ Lee I. Sherman

7

LEE I. SHERMAN

Deputy Attorneys General

8

Attorneys for Plaintiff

State of California

9

10

11

12

13

14

15

16

17

18

19

20

21

22

23

24

25

26

27

28 39
First Amended Complaint for Declaratory, Injunctive, and Mandamus Relief (18-cv-5169)

 
 Case 3:18-cv-05169-WHO Document 47 Filed 03/04/19 Page 1 of 31

United States District Court Northern District of California

1

2

3

4

UNITED STATES DISTRICT COURT

5

NORTHERN DISTRICT OF CALIFORNIA

6

7

CITY AND COUNTY OF SAN FRANCISCO,

8

Plaintiff,

9

v.

10

JEFFERSON B. SESSIONS, et al.,

11

Defendants.

12

Case No. 18-cv-05146-WHO
ORDER GRANTING PLAINTIFF’S MOTION FOR SUMMARY JUDGMENT AND DENYING DEFENDANTS’ MOTION FOR PARTIAL DISMISSAL OR PARTIAL SUMMARY JUDGMENT
Re: Dkt. Nos. 27, 30

13

STATE OF CALIFORNIA,

Case No. 18-cv-05169-WHO

14

Plaintiff,

15

v.

16

JEFFERSON B. SESSIONS, et al.,

17

Defendants.

ORDER GRANTING PLAINTIFF’S MOTION FOR SUMMARY JUDGMENT AND DENYING DEFENDANTS’ MOTION FOR PARTIAL DISMISSAL OR PARTIAL SUMMARY JUDGMENT

18

Re: Dkt. Nos. 25, 29

19

20

INTRODUCTION

21

Edward Byrne Memorial Justice Assistance Grant (“Byrne JAG”) program funds have

22 been the focal point of an ongoing dispute between the federal, state, and local governments for

23 the past two years. After President Trump assumed office, he issued an Executive Order

24 announcing a policy of withholding federal grants from “sanctuary jurisdictions,” which was

25 challenged by the City and County of San Francisco and the County of Santa Clara. I granted

26 summary judgment to prevent the Executive Order from being enforced; the Ninth Circuit

27 affirmed. City and Cty. of San Francisco v. Trump, 275 F. Supp. 3d 1196 (N.D. Cal. 2017), aff’d

28 in part, vacated in part, remanded sub nom. City and Cty. of San Francisco v. Trump, 897 F.3d

Case 3:18-cv-05169-WHO Document 47 Filed 03/04/19 Page 2 of 31

United States District Court Northern District of California

1 1225 (9th Cir. 2018).

2

Shortly thereafter, former Attorney General Jefferson Beauregard Sessions III imposed

3 three new conditions on the receipt of Byrne JAG funding for fiscal year 2017: the access, notice,

4 and Section 1373 certification conditions. These conditions required Byrne JAG applicants to

5 provide Immigration and Customs Enforcement (“ICE”) with “access” to correctional facilities for

6 immigration enforcement purposes, “notice” of detainee release dates, and to certify compliance

7 with 8 U.S.C. § 1373. California and San Francisco sued the DOJ for withholding their fiscal year

8 2017 grant funds after they asserted compliance with the new conditions. I found that the

9 challenged conditions were unlawful on multiple grounds and held that Section 1373 was

10 unconstitutional. City & Cty. of San Francisco v. Sessions, 349 F. Supp. 3d 924, 934 (N.D. Cal.

11 2018), judgment entered sub nom. California ex rel. Becerra v. Sessions, No. 3:17-CV-04701-

12 WHO, 2018 WL 6069940 (N.D. Cal. Nov. 20, 2018).

13

For fiscal year 2018, defendants Acting Attorney General Matthew G. Whitaker and the

14 Department of Justice (collectively, the “DOJ”) continued to include essentially the same fiscal

15 year 2017 challenged conditions as well as two other new conditions. The additional 2018

16 conditions require Byrne JAG recipients: (i) not to publicly disclose sensitive federal law

17 enforcement information in an attempt to harbor or shield “fugitives from justice” or “aliens” in

18 violation of federal immigration law (the “nondisclosure condition”); and (ii) to provide

19 information about the applicant’s laws and policies for purposes of assessing compliance with

20 Section 1373 (the “information condition”).

21

California and San Francisco have sued the DOJ challenging five conditions in the fiscal

22 year 2018 Byrne JAG Program. The DOJ filed a partial motion to dismiss or a partial motion for

23 summary judgment, seeking dismissal or judgment on California’s and San Francisco’s claims

24 regarding the nondisclosure and information conditions. The DOJ has preserved its arguments on

25 the access, notice, and certification conditions from the prior case on fiscal year 2017 funds, which

26 apply to some of the fiscal year 2018 Byrne JAG funding.

27

California and San Francisco responded with their own motions for summary judgment.

28 They seek declaratory relief that the challenged conditions are unconstitutional violations of the

2

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United States District Court Northern District of California

1 separation of powers and the Spending Clause of the United States Constitution and to enjoin the

2 DOJ from enforcing the challenged conditions or withholding Byrne JAG funds based on those

3 requirements. California also brings an Administrative Procedure Act claim and seeks mandamus

4 relief compelling the DOJ to issue California its fiscal year 2018 Byrne JAG awards without the

5 challenged conditions.

6

Only the nondisclosure condition raises a substantive concern that I have not addressed,

7 and it fails for somewhat different reasons than the other conditions. Left to its core—that local

8 jurisdictions should not publicize confidential federal law enforcement actions that are disclosed to

9 local authorities to insure deconfliction and protect local law enforcement and residents—seems

10 self-evident and reasonable. But DOJ did not leave it to its core, and instead larded it with broad-

11 ranging, ambiguous language that would allow DOJ the discretion to coerce local jurisdictions to

12 comply with its interpretation of the statutes in dispute in these cases. The exercise of such

13 discretion is all the more suspect in light of the active litigation over immigration issues between

14 California jurisdictions and the federal government, and the threat made by Administration

15 officials to commence criminal prosecution of California officials who follow that sovereign’s

16 interpretation of the law. See, e.g., CA Request for Judicial Notice (“RJN”), Ex. F (DHS

17 Secretary Nielsen confirming to the Senate Judiciary Committee that DOJ was “reviewing what

18 avenues might be available” to bring criminal charges against elected officials abiding by

19 sanctuary policies.).

20

Accordingly, for the reasons discussed more fully below, I find that (i) the challenged

21 conditions are ultra vires and violate the separation of powers, (ii) Section 1373 is

22 unconstitutional, (iii) the Attorney General exceeds the Spending Clause in violation of the United

23 States Constitution by imposing ambiguous challenged conditions in the fiscal year 2018 Byrne

24 JAG Program, (iv) the conditions are arbitrary and capricious, (v) California is entitled to the

25 mandamus relief it seeks, and (vi) a nationwide injunction is warranted but stayed. California’s

26 and San Francisco’s motions for summary judgment are granted, and the DOJ’s motions are

27 denied.

28 3

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United States District Court Northern District of California

1

BACKGROUND

2 I. FACTUAL BACKGROUND

3

A. The Immigration and Nationality Act

4

Congress reinforced the Executive Branch’s inherent authority “over the subject of

5 immigration and the status of aliens” when it passed the Immigration and Nationality Act (“INA”),

6 8 U.S.C. § 1101 et seq. Arizona v. United States, 567 U.S. 387, 394 (2012). The INA authorizes

7 the Department of Homeland Security (“DHS”) as well as the DOJ and other federal agencies to

8 enforce the immigration laws. See, e.g., 8 U.S.C. § 1227(a)(2) (allowing the Attorney General or

9 Secretary of Homeland Security to order removal of certain classes of immigrants). It also

10 contemplates coordination between federal officials and state or local jurisdictions. See Arizona,

11 567 U.S. at 411 (“Consultation between federal and state officials is an important feature of the

12 immigration system.”). Various provisions seek to accomplish such coordination and information

13 sharing when possible. See 8 U.S.C. § 1252c (authorizing state and local officers to make arrests

14 for unlawful reentry); 8 U.S.C. § 1324(c) (authorizing state and local officers to make arrests for

15 INA violations); 8 U.S.C. § 1357(g) (authorizing state and local officers to perform functions of a

16 federal immigration officer).

17

B. The Byrne JAG Program

18

The Byrne JAG program is a formula grant program that is administered by the Bureau of

19 Justice Assistance, a department within the Office of Justice Programs (“OJP”). See 34 U.S.C. §

20 10156(d)(2)(A) (stating that “the Attorney General shall allocate to each unit of local government”

21 funds determined by the established formula). Grant funding is awarded as a function of

22 population and violent crime rate. See 34 U.S.C. § 10156(a). Eligible grantees are entitled to their

23 awards so long as their Byrne JAG funds go toward programs in one of eight program areas: (1)

24 law enforcement, (2) prosecution and court, (3) prevention and education, (4) corrections and

25 community corrections, (5) drug treatment and enforcement, (6) planning, evaluation, and

26 technology improvement, (7) crime victim and witness programs, and (8) mental health programs.

27 See 34 U.S.C. § 10152(a)(1)(A)–(H).

28

Under the formula, California is expected to receive $28.9 million Byrne JAG funds in

4

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1 fiscal year 2018, including $18 million going to the Board of State and Community Corrections

2 (“BSCC”). Jolls Decl. ¶ 5. The BSCC plans to continue using the funds for education and crime

3 prevention, law enforcement, and court programs, as it has in previous years. Id. ¶¶ 9–10

4 (detailing the types of sub-grants that BSCC has provided in previous years, and the focus on

5 education and crime prevention programs for the next three-year grant cycle).

6

San Francisco is expected to receive $489,966 in direct Byrne JAG funding and

7 approximately $1 million in state sub-grant funding under the formula. Chyi Decl. ¶ 8, Ex. C.

8 San Francisco uses the funding to support law enforcement programs aimed at reducing the drug

9 trade and recidivism among repeat offenders, and for programs connecting those with substance

10 and mental health problems to appropriate services. Id. ¶¶ 10–11, 17. As in fiscal year 2017, San

11 Francisco faces the prospect of eliminating approximately ten full-time positions spanning six

12 departments without Byrne JAG funding. Id. ¶¶ 10–19; see also City & Cty. of San Francisco,

13 349 F. Supp. 3d at 936 (discussing San Francisco’s intended uses for JAG funds).

14

California and San Francisco received their fiscal year 2018 Byrne JAG award documents

15 on November 16, 2018. See DOJ RJN Exs. C, D.1 Because the award documents contained the

16 challenged conditions at issue in this litigation, California and San Francisco requested and

17 received an extension from the DOJ to accept the awards until 30 days after a Judgment is entered

18 in their respective cases. Chyi Decl. ¶ 15–16; Sherman Decl. at Ex. 7.

19

C. Fiscal Year 2017 Byrne JAG Program Conditions and Related Litigation

20

In 2016, the DOJ announced that Section 1373 would be an “applicable law” for the Byrne

21 JAG Program. See Admin. Record (“AR”)-384 (SF Dkt. No. 26; CA Dkt. No. 24). For the

22 following fiscal year (2017), the Byrne JAG Solicitation formalized the announcement, requiring a

23

24

1 The parties requested judicial notice of various public records, government documents, or court filings, whose accuracy and authenticity are not disputed. Government records such as letters,

25

memos, bulletins, or other reports or statements of public record are judicially noticeable. See, e.g., Brown v. Valoff, 422 F.3d 926, 933 n.9 (9th Cir. 2005) (taking judicial notice of government

26

administrative bulletin); Fed. R. Evid. 201(b). Court records from other proceedings are also susceptible to judicial notice if relevant to this litigation. See U.S. ex rel. Robinson Rancheria

27

Citizens Council v. Borneo, Inc., 971 F.2d 244, 248 (9th Cir. 1992) (holding that a court “may take notice of proceedings in other courts, both within and without the federal judicial system, if those

28

proceedings have a direct relation to matters at issue”). Thus, the requests for judicial notice are GRANTED. See SF Dkt. Nos. 27-1, 31, 57; CA Dkt. Nos. 25-1, 29-2, 41-1, 45.

5

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1 certification of compliance with Section 1373. AR-994, 1032-33. The DOJ additionally required

2 Byrne JAG funding recipients to have policies allowing federal agents “access” to any state or

3 local government correctional facility, and to provide “notice” of scheduled release dates for non-

4 citizens in those facilities. AR-1687–88.

5

I found, along with every court to hear challenges to the fiscal year 2017 Byrne JAG

6 conditions, that these conditions were unlawful. See City & Cty. of San Francisco, 349 F. Supp.

7 3d at 940–41 (summarizing related litigation at the time concerning the fiscal year 2017 Byrne

8 JAG conditions); see also City of Chicago v. Sessions, 888 F.3d 272, 293 (7th Cir. 2018)

9 (invalidating notice and access conditions); City of Philadelphia v. Sessions, 309 F. Supp. 3d 289

10 (E.D. Pa. 2018) (invalidating the notice, access, and Section 1373 certification condition).

11

Since then, the Third Circuit has affirmed in part the City of Philadelphia decision. City of

12 Philadelphia v. Attorney Gen. of United States of Am., No. 18-2648, 2019 WL 638931 (3d Cir.

13 Feb. 15, 2019). The court found that no authority was conferred to the DOJ by Congress via the

14 Byrne JAG statute itself or other statutes at issue here such as Section 10102 or Section

15 10153(a)(5)(D). Id. at *10. Several more courts also found the 2017 challenged conditions

16 unlawful. In States of New York, et al. v. Dep't of Justice, 343 F. Supp. 3d 213 (S.D.N.Y. 2018),

17 the court granted plaintiffs’ motion for partial summary judgment. It found the 2017 conditions

18 were ultra vires under the Administrative Procedure Act (“APA”), id. at 231, Section 1373 was

19 unconstitutional under the anticommandeering doctrine of the Tenth Amendment, id. at 237, the

20 conditions violated the separation of powers, id. at 238, and the conditions were arbitrary and

21 capricious under the APA, id. at 241. Similarly, in Los Angeles v. Sessions, No. 17-cv-7215 (C.D.

22 Cal. Sept. 13, 2018) (Dkt. No. 93) the court granted plaintiff’s motion for preliminary injunction

23 of the 2017 challenged conditions. It found that 34 U.S.C. § 10153(a), the provision providing the

24 Attorney General with authority over the “form” of the application, did not indicate authority to

25 add civil immigration conditions. Id. at 3.

26

In City of Los Angeles v. Sessions, No. 18-cv-7347 (C.D. Cal. Feb. 15, 2019), the district

27 court addressed the same fiscal year 2018 Byrne JAG conditions at issue here and granted

28 plaintiff’s motion for summary judgment while denying defendant’s motion for partial dismissal

6

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1 or partial summary judgment. See Joint Supp. RJN, Ex. A. It found no authority conferred by

2 Section 10153(a)(5)(D) to support the nondisclosure condition, and it found that the information

3 condition exceeded the “programmatic and financial information” that the Attorney General was

4 otherwise authorized to require of state and local governments. Id. at 7–8. Lastly, the court

5 granted a program-wide injunction and permanently enjoined the defendants from imposing the

6 challenged conditions in fiscal year 2018 Byrne JAG awards. Id. at 10.

7

D. Challenged Conditions in the Fiscal Year 2018 Byrne JAG Program

8

The DOJ continued to utilize requirements that are functionally equivalent to the three

9 challenged conditions in the prior fiscal year 2017 JAG Solicitation and added two new conditions

10 in fiscal year 2018. California and San Francisco challenge each of these five conditions in the

11 2018 Byrne JAG Solicitation. See SF First Amended Compl. (“FAC”) (Dkt. No. 22); CA FAC

12 (Dkt. No. 20). The DOJ moves for partial dismissal or summary judgment on the two new

13 conditions.

14

The 2018 Solicitation requires California and San Francisco, through their chief legal

15 officer, to continue to certify compliance with Section 1373. It modifies this requirement

16 somewhat by also requiring certification of compliance with 8 U.S.C. § 1644. See DOJ RJN Ex.

17 D ¶¶ 41–43. Section 1644 contains nearly identical language as Section 1373 and prohibits

18 restrictions on communicating immigration information. AR-1258, 1264.

19

The 2018 Solicitation also requires the chief legal officer to certify that the applying

20 jurisdiction will not interfere with law enforcement in their access to correctional facilities or in

21 the removal process by failing to provide notice of scheduled release dates and times. See DOJ

22 RJN Ex. D ¶¶ 45–46. Put another way, the Solicitation requires the applicant not to have laws,

23 policies, or practices that “impede” federal officers from exercising their authority under 8 U.S.C.

24 § 1357(a) and which impede their authority “relating to” 8 U.S.C. §§ 1226(a), 1226(c), 1231(a)(4),

25 1366(1), and 1366(3). AR-1233, 1241–42, 1250, 1260, 1268. Section 1357(a) describes

26 immigration officer authority to “interrogate any alien,” “arrest any alien,” or exercise other

27 proscribed powers without a warrant. 8 U.S.C. § 1357(a). Additionally, Sections 1226, 1231, and

28 1366 involve immigration officer powers to make arrests, detain, and release undocumented 7

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1 persons, and to make annual reports on certain “criminal alien” statistics.

2

The nondisclosure and the information conditions appear for the first time in the fiscal year

3 2018 Byrne JAG funding conditions. The nondisclosure condition provides that:

4

Consistent with the purposes and objectives of federal law enforcement statutes and

5

federal criminal law (including 8 U.S.C. 1324 and 18 U.S.C. chs. 1, 49, 227), no public disclosure may be made of any federal law enforcement information in a direct or

6

indirect attempt to conceal, harbor, or shield from detection any fugitive from justice

under 18 U.S.C. ch. 49, or any alien who has come to, entered, or remains in the United

7

States in violation of 8 U.S.C. ch. 12 – without regard to whether such disclosure would

constitute (or could form a predicate for) a violation of 18 U.S.C. 1071 or 1072 or of 8

8

U.S.C. 1324(a).

9 See DOJ RJN Ex. D ¶ 44.

10

The information condition, which the DOJ disputes is a condition in the first instance,

11 requires award recipients to collect certain information from sub-grant recipients. Id., Ex. D ¶ 47.

12 For example, California would not be able to authorize a sub-grant “unless it first obtains from the

13 proposed subrecipient responses to the questions identified in the program solicitation as

14 ‘Information regarding Communication with the Department of Homeland Security (DHS) and/or

15 Immigration and Customs Enforcement (ICE).” Id. Those questions include whether the

16 jurisdiction has “any laws, policies, or practices related to whether, when, or how employees may

17 communicate with DHS or ICE,” and require applicants to provide a copy of the law or policy,

18 describe the practices, and explain how it complies with Section 1373. See FAC at 52 (SF Dkt.

19 No. 22-2; CA Dkt. No. 20-1).

20

E. California and San Francisco’s Laws and Policies

21

The plaintiffs’ asserted interests implicated by the Byrne JAG Program challenged

22 conditions have been discussed thoroughly in the prior litigation of the fiscal year 2017 conditions.

23 See City & Cty. of San Francisco, 349 F. Supp. 3d at 937–40 (summarizing California and San

24 Francisco laws and policies relevant to the 2017 conditions). The California Legislature sought, in

25 its laws and policies, to use its “limited resources for public safety rather than immigration

26 enforcement” after concluding that limited involvement with immigration enforcement resulted in

27 safer communities. Id. at 938 (citing Cal. Gov. Code § 7284.2(f)). It also based policies on local

28 law enforcement’s belief in the importance of maintaining trust with immigrant communities. Id.

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1 San Francisco agreed, providing its own evidence in support of the importance that trust holds for

2 “greater reporting of crimes, more cooperative witnesses, and more assistance with law

3 enforcement investigations.” Id. at 941.

4 II. PROCEDURAL BACKGROUND

5

In August 2018, California and San Francisco filed lawsuits challenging the DOJ’s

6 imposition of the five challenged conditions on Byrne JAG funding in fiscal year 2018. See

7 Complaint (SF Dkt. No. 1; CA Dkt. No. 1). The plaintiffs filed their first amended complaints in

8 November 2018, and the DOJ filed a motion for partial dismissal or partial summary judgment in

9 December. See DOJ Partial Mot. to Dismiss or Summ. J. (SF Dkt. No. 27; CA Dkt. No. 25). In

10 response, California and San Francisco filed motions for summary judgment. See Mots. For

11 Summ. J. (SF Dkt. No. 30; CA Dkt. No. 29). Amici have also filed briefs in both matters.2

12

LEGAL STANDARD

13 I. MOTIONS TO DISMISS

14

To survive a Rule 12(b)(6) motion to dismiss, the plaintiff must allege “enough facts to

15 state a claim to relief that is plausible on its face.” Bell Atl. Corp. v. Twombly, 550 U.S. 544, 570

16 (2007). A claim is plausible when the plaintiff pleads facts that “allow[] the court to draw the

17 reasonable inference that the defendant is liable for the misconduct alleged.” Ashcroft v. Iqbal,

18 556 U.S. 662, 678 (2009) (citation omitted). While courts do not require “heightened fact

19 pleading of specifics,” a plaintiff must allege facts sufficient to “raise a right to relief above the

20 speculative level.” Twombly, 550 U.S. at 555, 570. There must be “more than a sheer possibility

21 that a defendant has acted unlawfully.” Id.

22

To decide if the plaintiff has stated a claim upon which relief can be granted, the court

23 accepts the plaintiff’s allegations as true and draws all reasonable inferences in favor of the

24 plaintiff. See Usher v. City of Los Angeles, 828 F.2d 556, 561 (9th Cir. 1987). However, the court

25 is not required to accept as true “allegations that are merely conclusory, unwarranted deductions of

26

27 2 There are two motions for leave to file amicus briefs. See Admin. Mots. for Leave (SF Dkt. No.

28

54; CA Dkt. No. 38). Because each motion complies with my prior Order Regarding Amicus Briefing, they are GRANTED.

9

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1 fact, or unreasonable inferences.” In re Gilead Scis. Sec. Litig., 536 F.3d 1049, 1055 (9th Cir.

2 2008).

3

If the court dismisses a complaint, it “should grant leave to amend even if no request to

4 amend the pleading was made, unless it determines that the pleading could not possibly be cured

5 by the allegation of other facts.” Lopez v. Smith, 203 F.3d 1122, 1127 (9th Cir. 2000). In making

6 this determination, the court should consider factors such as “the presence or absence of undue

7 delay, bad faith, dilatory motive, repeated failure to cure deficiencies by previous amendments,

8 undue prejudice to the opposing party and futility of the proposed amendment.” Moore v. Kayport

9 Package Express, 885 F.2d 531, 538 (9th Cir. 1989).

10 II. MOTIONS FOR SUMMARY JUDGMENT

11

A party is entitled to summary judgment where it “shows that there is no genuine dispute

12 as to any material fact and [it] is entitled to judgment as a matter of law.” FED. R. CIV. P. 56(a).

13 To prevail, a party moving for summary judgment must show the lack of a genuine issue of

14 material fact with respect to an essential element of the non-moving party’s claim, or to a defense

15 on which the non-moving party will bear the burden of persuasion at trial. See Celotex Corp. v.

16 Catrett, 477 U.S. 317, 323 (1986). Once the movant has made this showing, the burden then shifts

17 to the party opposing summary judgment to identify “specific facts showing there is a genuine

18 issue for trial.” Id. The party opposing summary judgment must then present affirmative

19 evidence from which a jury could return a verdict in that party’s favor. Anderson v. Liberty

20 Lobby, 477 U.S. 242, 257 (1986).

21

On summary judgment, the Court draws all reasonable factual inferences in favor of the

22 non-movant. Id. at 255. In deciding a motion for summary judgment, “[c]redibility

23 determinations, the weighing of the evidence, and the drawing of legitimate inferences from the

24 facts are jury functions, not those of a judge.” Id. However, conclusory and speculative testimony

25 does not raise genuine issues of fact and is insufficient to defeat summary judgment. See

26 Thornhill Publ’g Co., Inc. v. GTE Corp., 594 F.2d 730, 738 (9th Cir. 1979).

27

28 10

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1

DISCUSSION

2 I. 3

BYRNE JAG CONDITIONS RESEMBLING THE 2017 CONDITIONS As an initial matter, the parties have agreed to incorporate by reference arguments and

4 supporting documents that they presented in the related 2017 Byrne JAG litigation to preserve

5 their arguments for appeal. See Minute Order (SF Dkt. No. 25; CA Dkt. No. 23); City & Cty. of

6 San Francisco, 349 F. Supp. 3d 924. There is no dispute that certain challenged conditions in the

7 fiscal year 2018 Byrne JAG Program are functionally the same as the notice, access, and Section

8 1373 certification conditions in the fiscal year 2017 Byrne JAG program at issue in the previous

9 related litigation. See SF RJN Ex. B at 36–37, 43 (stating the conditions); Ex. C at 3–4

10 (summarizing conditions, including “interview” and “custody” conditions on fiscal year 2018

11 Byrne JAG requirements resembling the notice and access conditions); City of Los Angeles, No.

12 18-cv-7347 (C.D. Cal. Feb. 15, 2019)(“the substance and effect of the conditions remains the

13 same” even after minor changes were made from 2017), Joint Supp. RJN, Ex. A at 5. Even

14 though the conditions remain in the 2018 Solicitation, the parties also do not dispute that the DOJ

15 is not enforcing them—at least while the matter is pending in the Ninth Circuit.

16

As the notice, access, and Section 1373/1644 certification conditions remain essentially the

17 same, my conclusions on those conditions still hold and I incorporate it by reference. The 2018

18 notice, access, and Section 1373/1644 certification conditions “violate the separation of powers;

19 Section 1373 is unconstitutional; the Attorney General exceeds the Spending Power in violation of

20 the United States Constitution” by imposing the Section 1373/1644 certification condition and

21 access and notice conditions; and “the challenged conditions are arbitrary and capricious.” City &

22 Cty. of San Francisco, 349 F. Supp. 3d at 934.

23

The remaining analysis in this Order focuses on the nondisclosure and information

24 conditions, the challenged conditions in the 2018 Byrne JAG award and Solicitation that were not

25 present in 2017.

26 II. THE SEPARATION OF POWERS

27

The DOJ argues that the nondisclosure and information conditions are authorized by three

28 statutory provisions that are permissible under the separation of powers. Specifically, it cites 11

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1 34 U.S.C. § 10153(a)(5)(D) and 34 U.S.C. §§ 10102(a)(2) and (a)(6), asserts that the authority

2 applies to the Byrne JAG program, and contends that the statutes exhibit congressional intent to

3 allow the Assistant Attorney General (“AAG”) of the Office of Justice Programs to exercise

4 discretion over formula grants.

5

Congress may, consistent with the separation of powers, delegate certain authority to spend

6 money to the Executive Branch. See Clinton v. City of N.Y., 524 U.S. 417, 488 (1998) (“Congress

7 has frequently delegated the President the authority to spend, or not to spend, particular sums of

8 money.”) (Breyer, J. dissenting). The Constitution gives an “unmistakable expression of a

9 determination that legislation by the national Congress be a step-by-step, deliberate and

10 deliberative process.” I.N.S. v. Chadha, 462 U.S. 919, 959 (1983).

11

Sections 10102(a)(2) and (6) state:

12

The Assistant Attorney General shall… (2) maintain liaison with...State

13

governments in matters relating to criminal justice; [and]… (6) exercise such other

powers and functions as may be vested in the Assistant Attorney General pursuant

14

to this chapter or by delegation of the Attorney General, including placing special

conditions on all grants, and determining priority purposes for formula grants.

15

16

34 U.S.C. § 10102.

17 Section 10153 reads in part:

18

(a) To request a grant under this part, the chief executive officer of a State or unit

19

of local government shall submit an application to the Attorney General within 120 days after the date on which funds to carry out this part are appropriated for a fiscal

20

year, in such form as the Attorney General may require.

…

21

(5) A certification, made in a form acceptable to the Attorney General and executed

by the chief executive officer of the applicant (or by another officer of the applicant,

22

if qualified under regulations promulgated by the Attorney General), that

23

…

(D) the applicant will comply with all provisions of this part and all other applicable

24

Federal laws.

25

34 U.S.C. § 10153.

26 None of these statutory authorities grants the DOJ power to impose the fiscal year 2018 Byrne

27 JAG challenged conditions, as discussed further below.

28 12

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A. Section 10102 Does Not Grant Authority to Impose the Fiscal Year 2018 Byrne

1

JAG Challenged Conditions

2

The DOJ relies on Section 10102 for independent authority to impose the nondisclosure

3 and information conditions. It makes similar arguments in favor of the new fiscal year 2018

4 conditions that it made in the litigation over the 2017 conditions. In particular, it contends that

5 Section 10102(a)(6) grants it authority because the amendment of the Reauthorization Act,

6 creating the Byrne JAG Program in 2006 inserted “including placing special conditions on all

7 grants, and determining priority purposes for formula grants.” Pub. L. No. 109-162, § 1152(b),

8 119 Stat. at 3113; 34 U.S.C. § 10102(a)(6). The DOJ contends that giving the amendment no

9 practical effect would contravene the “well-known canon of statutory construction that, in general,

10 a statute should not be construed so as to render a word or clause inoperative.” Bell v. Reno, 218

11 F.3d 86, 91 (2d Cir. 2000); see, e.g., Johnson v. Consumerinfo.com, Inc., 745 F.3d 1019, 1022 (9th

12 Cir. 2014) (“When Congress acts to amend a statute, we presume it intends its amendment to have

13 real and substantial effect.”) (citation omitted).

14

The DOJ noted its disagreement with my prior Order in the related litigation, but has not

15 shown why the legal reasoning concerning the fiscal year 2017 conditions does not apply with

16 equal force in 2018. In City of Chicago v. Sessions, 888 F.3d 272, 284–85 (7th Cir. 2018), and

17 City of Philadelphia v. Sessions, 280 F. Supp. 3d 579, 616–17 (E.D. Pa. 2017), the courts found

18 that the DOJ’s interpretation of Section 10102(a)(6) was contrary to the plain meaning of the

19 statute. I agreed with City of Chicago and City of Philadelphia in the prior related litigation. See

20 City & Cty. of San Francisco, 349 F. Supp. 3d at 947–48. Since then, the Third Circuit and the

21 Hon. Egardo Ramos of the United States District Court for the Southern District of New York

22 have also rejected the DOJ’s interpretation of Section 10102(a)(6). See City of Philadelphia, 2019

23 WL 638931, at *8; States of New York, et al. v. Dep't of Justice, 343 F. Supp. 3d 213 (S.D.N.Y.

24 2018).

25

Section 10102(a)(6)’s language allowing the Attorney General to place “special conditions

26 on all grants” and to determine “priority purposes for formula grants” depends on the authority

27 “vested in the Assistant Attorney General pursuant to this chapter…” 34 U.S.C. § 10102. As I

28 found in the related litigation, “[n]o portion of the same chapter authorizes the conditions

13

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1 explicitly,” the Attorney General does not have the power to impose the conditions independent of

2 Congress, and the Byrne JAG statute does not reference Section 10102. City & Cty. of San

3 Francisco, 349 F. Supp. 3d at 948.

4

Section 10102(a)(6)’s statutory structure does not support the DOJ’s interpretation of its

5 broad independent authority either. As the court discussed in City of Chicago, 888 F.3d at 285,

6 the final “catch-all provision at the end of a list of explicit powers would be an odd place indeed to

7 put a sweeping power to impose any conditions on any grants…” This is still true.

8

1. The duty to maintain liaison under Section 10102(a)(2)

9

Related to the power to place “special conditions,” however, the DOJ relies on a provision

10 stated earlier in the list of its “Duties and Functions of the Assistant Attorney General.” 34 U.S.C.

11 § 10102. The DOJ asserts that under Section 10102(a)(2), the AAG’s duty to “maintain liaison”

12 with California and San Francisco in matters related to criminal justice authorizes it to impose the 13 nondisclosure and information conditions.3 It contends that the nondisclosure condition is

14 justified by the need to keep law enforcement officers safe and their operations confidential while

15 working with state and local law enforcement, and that the information condition was intended to

16 clarify that applicants can abide by other conditions and maintain liaison with DOJ. It interprets

17 Section 10102(a)(2) as permitting it to (i) protect the confidentiality of federal law enforcement

18 information provided to state and local agencies, and (ii) assess the ability of those agencies to

19 engage in cooperation by gathering information about their laws and policies. See Eringer v.

20 Principality of Monaco, No. CV 10-1803 GAF (EX), 2011 WL 13134271, at *5 (C.D. Cal. Aug.

21 23, 2011), aff’d, 533 F. App’x 703 (9th Cir. 2013) (stating that plaintiff’s duty to “maintain

22 liaison” between two agencies entailed “regularly shar[ing] sensitive intelligence information.”).

23

An agency lacks power to act “unless and until Congress confers power upon it.” La. Pub.

24 Serv. Comm’n v. FCC, 476 U.S. 355, 374 (1986). In the grant context, the power to place

25 conditions on grants depends on “whether Congress conferred authority on the Attorney General

26

27

3 Previously, the DOJ relied on Section 10102(a)(2) to argue that its 2017 conditions comport with the Spending Power and were related to the criminal justice purposes of the Byrne JAG Program.

28

I found that the challenged conditions, premised on the authority of Section 10102(a)(2), were unrelated. See City & Cty. of San Francisco, 349 F. Supp. 3d at 958–59.

14

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1 to impose them.” City of Chicago v. Sessions, 264 F. Supp. 3d 933, 940 (N.D. Ill. 2017). The

2 DOJ puts far more weight on “maintain liaison” than it can hold.

3

As discussed above, the plain text of Section 10102 grants the AAG “power to place

4 special conditions on grants only to the extent that such power has been vested in him or her

5 ‘pursuant to this chapter or by delegation of the Attorney General.” City of Philadelphia, 2019 6 WL 638931, at *7.4 The text of the “maintain liaison” authority on which the DOJ relies states

7 only that “[t]he Assistant Attorney General shall… (2) maintain liaison with...State governments

8 in matters relating to criminal justice.” 34 U.S.C. § 10102. This provision does not support a

9 broad authority to place the challenged conditions on Byrne JAG grantees. California and San

10 Francisco argue that this statutory provision was not intended as empowering the DOJ to impose

11 conditions, and instead was an instruction for the AAG to maintain bilateral communications or

12 act as a point of contact with state and local governments.

13

The DOJ does not identify where in the statutory text Congress expressed its intent for

14 maintaining liaison to amount to discretionary authority for creating conditions on state and local

15 governments in the Byrne JAG Program. Instead, it merely defines “liaison” itself. See DOJ

16 Oppo./Reply at 3 (citing Liaison, Merriam-Webster, https://www.merriam-

17 webster.com/dictionary/liaison (last visited Jan. 15, 2019) (defining liaison as “a close bond or

18 connection” or “a person who establishes and maintains communication for mutual understanding

19 and cooperation.”). It is too great a leap to conclude that because Congress imposed an obligation

20 on the DOJ to “maintain liaison,” or maintain a close connection to “Federal and State

21 governments in matters relating to criminal justice,” that it was intending to grant the DOJ broad

22 authority to impose the challenged conditions over states and local governments receiving funds.

23 34 U.S.C. § 10102(a)(2).

24

The structure of Section 10102 does not support the contention that “maintain liaison” in

25

26

4 This is consistent with the findings of every other court to hear this argument on Section 10102(a)(6). See, e.g., City of Chicago, 888 F.3d at 285 (finding the term “including” limited

27

authority to placing conditions vested in the Attorney General in the same chapter or delegated to him or her elsewhere); States of New York et al., 343 F. Supp. 3d at 228 (same); City & Cty. of San

28 Francisco, 349 F. Supp. 3d at 948 (same).

15

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1 Section 10102(a)(2) provides more than a ministerial duty on the Attorney General to maintain

2 communication with other Federal and State agencies. As the Third Circuit recently stated, “a

3 word is known by the company it keeps.” City of Philadelphia, 2019 WL 638931, at *8. The six

4 powers of the AAG in this section “all deal with the AAG’s power to disseminate criminal justice

5 information and coordinate with various agencies and officials.” Id. The Seventh Circuit agrees

6 with this interpretation. See City of Chicago, 888 F.3d at 285 (“The preceding ‘powers’ in the list,

7 §§ 10102(a)(1)–(5), address the communication and coordination duties of the Assistant Attorney

8 General.”).

9

On the other hand, the nondisclosure condition is more than ministerial. It requires

10 grantees to internally enforce against “direct or indirect attempts” to disclose information, and it

11 empowers the AAG to be the sole arbiter of what it considers to be a violation of the condition.

12

Further, there is no indication that the “maintain liaison” duty in “matters relating to

13 criminal justice” conferred a power to place conditions pertaining to immigration enforcement at

14 all. Id. The information condition is squarely focused on immigration enforcement, and at most

15 superficially touches on the liaison relationship. The information condition may help determine if

16 grantees can maintain liaison, as the DOJ argued at the hearing, but it was also intended to confirm

17 compliance with conditions like the Section 1373 certification condition.

18

The nondisclosure condition raises a closer question. The DOJ asserts that the condition is

19 concerned with protecting confidential federal law enforcement information and the liaison

20 relationship between the federal and state or local partners. A narrow and unambiguous condition

21 requiring jurisdictions to promise not to disclose imminent confidential federal criminal law

22 enforcement operations in order to receive a law enforcement grant would be reasonable: the risk

23 of harm to law enforcement officers and civilians would be significantly increased if lack of trust

24 between federal and local partners caused the federal government not to disclose planned

25 operations to their local counterparts. That would interfere with the ability to “maintain liaison.”

26 California and San Francisco agreed at the hearing that the desire to maintain confidentiality is

27 reasonable and that they would not intentionally publicize confidential information concerning

28 impending operations.

16

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1

That said, the scope of the nondisclosure condition exceeds the narrow characterization

2 offered by the DOJ, and it exceeds the ministerial duty to “maintain liaison.” The duty to

3 “maintain liaison…in matters relating to criminal justice,” however expansively one reads it, does

4 not venture into immigration enforcement more broadly. Yet the nondisclosure condition focuses

5 not only on preventing disclosures related to harboring “fugitives of justice” but applies to “any

6 alien.” Further, it prohibits a “direct or indirect attempt” to harbor those individuals, as

7 determined by the AAG. This language seeks the broadest coverage possible by its use of the

8 term “indirect attempt,” which has no boundary. It would be interpreted by the AAG. Given the

9 current tension between federal and local authorities, it does not require much imagination to think

10 that the AAG today might well consider many parts of the “sanctuary” laws as indirect attempts to

11 harbor “aliens,” despite rulings of courts around the country that have rejected DOJ’s

12 interpretations of its authority and the constitutionality of Section 1373.

13

The DOJ’s interest in immigration enforcement is distinct from the criminal justice focus

14 of the Byrne JAG Program. City & Cty. of San Francisco, 349 F. Supp. 3d at 946 (“Congress

15 repealed the only requirement related to immigration that existed before, and it has failed to amend

16 the Byrne JAG statute to add similar conditions since.”). Congress knows how to grant broad

17 discretionary authority but did not do so here. See 34 U.S.C. § 10446(e)(3) (Grants to Combat

18 Violent Crime Against Women) (“In disbursing grants under this subchapter, the Attorney General

19 may impose reasonable conditions on grant awards....”). There is no authority in Section 10102

20 for the DOJ to impose the fiscal year 2018 Byrne JAG nondisclosure or information conditions

21 based on its authority to place “special conditions” on grants or its duty to “maintain liaison” in

22 criminal justice matters.

23

B. Section 10153(a) Does Not Grant Authority to Impose the Fiscal Year 2018

Byrne JAG Challenged Conditions

24

The DOJ contends that Section 10153(a), allowing the AAG to dictate the “form” of

25

applications, and Section 10153(a)(5)(D), allowing it to require compliance with all “applicable

26

Federal laws” in connection with the Byrne JAG awards, provide ample support for the

27

nondisclosure and information conditions. The nondisclosure condition references statutes like 8

28

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1 U.S.C. § 1324(a), while the information condition references compliance with Section 1373. See

2 DOJ Mot. for Partial Dismissal or Summ. J. at 7–8.5

3

California argues that the conditions violate the Tenth Amendment for three reasons: (i)

4 the statutory structure of JAG limits the “applicable Federal laws” to those related to the grant

5 application; (ii) laws identified in the fiscal year 2018 certifications do not apply to California or

6 its subdivisions at all; and (iii) even if Sections 1226, 1231, 1357, or 1366 were “applicable

7 Federal laws,” the DOJ lacks authority to dictate what the state can do without violating

8 anticommandeering doctrine. San Francisco’s Tenth Amendment arguments primarily concern

9 Section 1373, which I have already addressed. See supra Sec. I.

10

In the Byrne JAG Program, Congress has pre-determined who the eligible recipients are

11 and how much money they are to receive, but the operative statute leaves to the Attorney General

12 certain discretion to carry out parts of the program. For example, the Byrne JAG statute grants

13 authority to waive the “program assessment component” requirement, 34 U.S.C. § 10152(c)(1)–

14 (2), to add requirements to assure that the applicant report certain programmatic and financial

15 records “as the Attorney General may reasonably require,” id. at § 10153(a)(4), and to require a

16 certification that “there has been appropriate coordination with affected agencies.” Id. at §

17 10153(a)(5).

18

In the related litigation, I addressed whether Section 1373 (if it was constitutional) would

19 be an applicable law authorized by Section 10153(a)(5)(D). Starting with the text, I found that the

20 term “applicable” could hold both meanings proposed by the parties and agreed with the City of

21 Philadelphia and City of Chicago decisions that found the plain meaning of the text in the statute a

22 “close call.” City of Philadelphia, 280 F. Supp. 3d at 619; City of Chicago, 264 F. Supp. 3d at

23 944. The text alone did not indicate an answer to the scope of authority included in requiring

24 compliance with applicable federal laws.

25

Turning to the statutory structure, I found that the “applicable laws” clause – located in the

26

27 5 The fiscal year 2018 JAG Solicitation requires other certifications of compliance with Section

28

1373, Section 1644, Section 1324, and a certification to not “impede” federal officials’ authority related to 8 U.S.C. §§ 1226, 1231, 1357, and 1366. See AR-1268.

18

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1 last of four residual clauses within a proviso concerning the grant application – confined

2 “applicable” to the subject matter of the principal clause. See Republic of Iraq v. Beaty, 556 U.S.

3 848, 857–58 (2009). Therefore, “the phrase ‘all other applicable Federal laws’ refers to the

4 preceding clause requiring grant applications to include a certification ‘in a form acceptable to the

5 Attorney General.’” City & Cty. of San Francisco, 349 F. Supp. 3d at 955 (citing 34 U.S.C. § 6 10153(a)(5) (emphasis added)). I reaffirm that view here.6

7

The DOJ’s references to federal laws in the fiscal year 2018 certifications, to the extent

8 they are asserted as applicable at all, are not related to the grant application or its form. For

9 “applicable” laws like Section 1373 and Section 1644, the DOJ preserves its disagreements for

10 appeal. However, the DOJ does not argue against California’s position that the other laws

11 referenced in the conditions are not applicable to the State at all. See DOJ Mot. at 19 (“the FY

12 2018 Byrne JAG conditions do not require California to comply with the other provisions – that is,

13 8 U.S.C. §§ 1226, 1231, 1357, and 1366.”). If the federal laws mentioned in the new 2018

14 certifications are not “applicable Federal laws,” their respective conditions are not authorized by

15 Section 10153(a).

16

California also argues that the anticommandeering doctrine would bar the challenged

17 conditions, even if Sections 1226, 1231, 1257, and 1366 were applicable laws. See Murphy v.

18 NCAA, 138 S. Ct. 1461, 1478 (2018) (finding prohibitions that “unequivocally dictate[] what a

19 state legislature may and may not do” violate the anti-commandeering rule as much as affirmative

20 commands.). I need not decide this now. The DOJ does not contend those laws, referenced in its

21 conditions, are “applicable” to California or San Francisco in the first place.

22

After reviewing the asserted authority of Section 10102 and Section 10153(a), I find that

23 Congress has not granted the DOJ the power to impose the nondisclosure or information

24

25

6 The Third Circuit also held that Section 1373 was not an applicable law for purposes of the Byrne JAG program. See City of Philadelphia, 2019 WL 638931, at *9 (finding “it would be

26

reasonable to view ‘all other applicable Federal laws’ to refer specifically to laws that apply to operations relating to the grant, not to require the City to certify compliance with every single law

27

that might apply to it.”). The court also stated that 34 U.S.C. § 10228(a), which prohibits the DOJ from “exercis[ing] any direction, supervision, or control over any police force or any other

28

criminal justice agency,” could be a statutory limit on what is “applicable” under Section 10153(a). Id. at *10.

19

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1 conditions. Accordingly, imposition of the challenged conditions is ultra vires and violates the

2 separation of powers.

3 III. THE SPENDING POWER

4

Plaintiffs raise claims for relief premised on a violation of the Spending Clause of Article

5 I, Section VIII of the United States Constitution, assuming for the sake of argument that Congress

6 delegated to the DOJ authority to impose the challenged conditions on Byrne JAG funding. See

7 SF FAC at 26; CA FAC at 35. Congress “may offer funds to the States, and may condition those

8 offers on compliance with specified conditions.” Nat’l Fed’n of Indep. Bus. v. Sebelius, 567 U.S.

9 519, 537 (2012). However, if Congress intended to impose conditions on spending they must be

10 “reasonably related to the purpose of the federal program.” S. Dakota v. Dole, 483 U.S. 203, 207

11 (1987) (O’Connor, J., dissenting).

12

Additionally, if Congress intended “to impose a condition on the grant of federal moneys,

13 it must do so unambiguously.” Pennhurst State Sch. & Hosp. v. Halderman, 451 U.S. 1, 17

14 (1981). Unambiguous conditions enable “States to exercise their choice knowingly, cognizant of

15 the consequences of their participation.” Id. Courts thus view statutes “from the perspective of a

16 state official who is engaged in the process of deciding whether the State should accept [the] funds

17 and the obligations that go with those funds.” Arlington Cent. Sch. Dist. Bd. of Educ. v. Murphy,

18 548 U.S. 291, 296 (2006).

19

A. Relatedness

20

The Byrne JAG Program is a formula grant program for certain criminal justice purposes.

21 34 U.S.C. § 10152(a)(1); see also City & Cty. of San Francisco, 349 F. Supp. 3d at 959

22 (summarizing the criminal justice purposes of the Byrne JAG Program more thoroughly). The

23 DOJ moves for dismissal or summary judgment, insisting that the nondisclosure and information

24 conditions are sufficiently related to the federal interests in the Byrne JAG Program. See New

25 York v. United States, 505 U.S. 144, 167 (1992) (stating that only “some relationship” is necessary

26 between spending conditions and “the purpose of the federal spending.”). Specifically, the DOJ

27 asserts that the nondisclosure and information conditions insure that any funded program does not

28 “thwart the federal government’s exercise of its ability to remove aliens not lawfully present in the 20

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1 United States or removable due to a criminal conviction.” DOJ Mot. at 14:17–19.

2

San Francisco contrasts the immigration enforcement purposes of the challenged fiscal

3 year 2018 conditions with Congress’s purposes in creating the Byrne JAG Program—to support

4 states and local law enforcement in eight permissible program areas related to “combat[ting] the

5 most urgent public safety problems in their own communities.” City & Cty. of San Francisco, 349

6 F. Supp. 3d at 959 (quoting 151 Cong. Rec. 25, 919 (2005)). I have already addressed why

7 immigration enforcement conditions like the access and notice conditions were not sufficiently

8 related to criminal justice to meet the relatedness requirement. Id. (“immigration law does not

9 impact local law enforcement’s administration and enforcement efforts in the criminal justice

10 system.”); see also City of Philadelphia, 280 F. Supp. 3d at 642, 642 (“Immigration law has

11 nothing to do with the enforcement of local criminal laws.”).

12

The same is true with the information condition, which appears to be included at least in

13 part “to assess the accuracy” of the applicant’s certifying compliance with Section 1373. DOJ

14 Mot. at 8. Section 1373 is unrelated to Byrne JAG for all the reasons discussed in my prior Order.

15 See City & Cty. of San Francisco, 349 F. Supp. 3d at 961 (“Requiring a certification of

16 compliance with an inapplicable law would seem to exemplify un-relatedness.”). Similarly,

17 requiring the underlying information from grantees to assess their compliance with an inapplicable

18 law like Section 1373 is equally unrelated. The immigration enforcement interests furthered by

19 the information condition do not sufficiently relate to the federal interests in criminal justice of the

20 Byrne JAG Program.

21

However, my prior analysis is not necessarily dispositive of the nondisclosure condition, a

22 part of which could be reasonably related to Byrne JAG’s purposes. See Dole, 483 U.S. at 213

23 (“Congress may condition grants under the spending power only in ways reasonably related to the

24 purpose of the federal program.”). The crux of DOJ’s argument relies on an incident where the

25 Oakland’s mayor informed residents of an impending federal immigration operation on social

26 media, allegedly compromising the operation and law enforcement safety.7 The nondisclosure

27

28

7 Plaintiffs dispute the underlying facts and whether this incident would apply to the nondisclosure condition. The evidence of what happened is not before me, and I take no position on it.

21

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1 condition requires California and San Francisco to certify that they will not disclose confidential

2 federal law enforcement information that relates to harboring both criminals and non-criminal

3 immigrants. See DOJ RJN Ex. D ¶ 44.

4

Unlike the 2017 notice and access conditions, the nondisclosure condition’s focus on

5 protecting confidential federal law enforcement information expressly includes criminal and

6 immigration enforcement. While immigration enforcement conditions had no relationship with

7 any of the eight permissible Byrne JAG funded program areas, protecting the communication of

8 confidential law enforcement information in exigent circumstances overlaps with some focuses of

9 the program. See, e.g., 34 U.S.C. § 10152(a)(1)(A) (“law enforcement program”); (E) (“drug

10 treatment and [drug] enforcement programs”). Accordingly, protecting confidential federal law

11 enforcement information has some relationship with plaintiffs’ Byrne JAG funded programs. For

12 example, California’s Byrne JAG funding has in the past gone towards task forces on criminal

13 drug enforcement, violent crime, and gang activities—all of which would share an interest in

14 maintaining the confidentiality of federal law enforcement information. See Joll Decl. ¶ 15. San

15 Francisco’s funding appears to be more services-oriented, but it has also used funds for law

16 enforcement programs “designed to reduce criminal behavior and improve public safety…” SF

17 Mot. Summ. J. at 4; Chyi Decl. ¶¶ 10–11, 17 (discussing programs like Young Adult Court, Law

18 Enforcement Assisted Diversion, Focused Drug Deterrence, and Drug Court Prosecution aimed at

19 reducing recidivism).

20

That said, as California and San Francisco argue, the nondisclosure condition does not

21 make a distinction between undocumented immigrants subject to potential criminal law

22 enforcement and those who are not, even though “many immigration violations do not involve

23 criminal law and are only violations of civil penalties.” City & Cty. of San Francisco, 349 F.

24 Supp. 3d at 960; see also 8 U.S.C. §§ 1182(a)(6)(A) & (9)(B), 1202(g), 1227(a)(1)(B). The

25 nondisclosure condition is somewhat related to the federal interests in criminal justice, but for the

26 reasons described below it does not pass muster because of its ambiguity.

27

B. Ambiguity

28

California and San Francisco challenge the nondisclosure and information conditions as

22

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1 ambiguous. I focus again on the nondisclosure condition because the analysis of the information

2 condition is little different than the Section 1373 certification condition in the 2017 litigation.

3 California argues that (i) the nondisclosure condition’s authority under Section 10102(a)(2) is

4 even more ambiguous than Section 10102(a)(6) or Section 10152(a)(5)(D), which I also found to

5 be ambiguous; and (ii) the DOJ’s own explanations of the nondisclosure condition does not enable

6 grantees to knowingly participate “cognizant of the consequences.” DOJ Ex. D ¶ 44. San

7 Francisco adds that both conditions “cannot have been unambiguously authorized by Congress”

8 because they were never statutorily authorized by Congress. City of Philadelphia, 280 F. Supp. 3d

9 at 646.

10

The parties dispute whether the nondisclosure condition is clear by its text. The DOJ

11 points to the Rules of Construction that define terms like “alien,” “federal law enforcement

12 information,” and “public disclosure” for purposes of the nondisclosure condition. Each award

13 document also directs applicants to ask the Office of Justice Programs questions on the meaning or

14 scope of the conditions if anything is not clear. See DOJ RJN, Ex. C ¶¶ 42–46. The DOJ relies on

15 cases from different circuits that each hold Congress “need not specifically identify and proscribe

16 in advance every conceivable state action that would be improper.” Benning v. Georgia, 391 F.3d

17 1299, 1306 (11th Cir. 2004); see also Charles v. Verhagen, 348 F.3d 601, 607 (7th Cir. 2003)

18 (finding that the nature of a grant condition can be indeterminate as long as its existence is clear).

19

DOJ’s argument fails. For one thing, the nondisclosure condition suffers from the same

20 problem identified by the court in City of Philadelphia: if there is no authority conferred by

21 Section 10102(a)(2) enabling the DOJ’s nondisclosure condition, then it cannot have been

22 unambiguously authorized. City of Philadelphia, 280 F. Supp. 3d at 646 (finding the conditions

23 “[c]annot have been unambiguously authorized by Congress if they were never statutorily

24 authorized.”). For another, the nondisclosure condition flunks the operative test of whether it

25 allows grantees to participate in the Byrne JAG Program “knowingly,” and “cognizant of the

26 consequences.” Pennhurst State Sch. & Hosp., 451 U.S. 1, 17 (1981). The condition goes well

27 beyond the DOJ’s stated purposes. It is one thing to protect against disclosures of the kind

28 allegedly made by Oakland’s mayor. AR-01038–39. But it is quite another to require grantees to

23

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1 comply with the unexplained and unbounded discretion of the AAG to avoid “indirect attempts” to

2 disclose information.

3

California posits that it is unclear whether the condition prevents it from participation

4 because of its TRUTH Act and Model Policies for K-12 schools. The TRUTH Act was enacted to

5 “promote public safety” and transparency by subjecting local law enforcement who assist federal

6 immigration enforcement “to meaningful oversight.” 2016 Cal. Legis. Serv. Ch. 768 § 2(h), (i).

7 The TRUTH Act classifies certain ICE records as public records under the California Public

8 Records Act, and it requires that jurisdictions providing ICE with access to detention facilities

9 hold community forums to inform the public about ICE access. Cal. Gov’t Code § 7283.1(d). The

10 State has found these forums helpful to “promoting accountability between law enforcement and

11 the community.” Goldstein Decl. ¶ 11.

12

California’s K-12 Model Policies for responding to immigration enforcement were

13 published in Assembly Bill 699, Cal. Ed. Code § 234.7(f)(1), to support students’ “inalienable

14 right to attend campuses which are safe, secure and peaceful.” Cal. Const. art. I § 28(f)(1). The

15 K-12 Model Policies require school employees to provide students and their families “with

16 appropriate notice and a description of the immigration officer’s request,” along with any

17 documents provided by the law enforcement officer, if there is a request for immigration

18 enforcement information. CA RJN Ex. D at 20. School employees are also required to obtain

19 consent from the student’s parent or guardian before allowing them to be interviewed or searched 20 for immigration enforcement purposes. CA RJN Ex. D at 31.8

21

At the hearing, the DOJ disclaimed any intent to reach the TRUTH Act’s public forum

22 requirements or the K-12 model policies by enforcement of the nondisclosure condition. Yet in its

23 APA argument, the DOJ contended that California Labor Code § 90.2(a), requiring employers to

24

25 8 Amicus Los Angeles Unified School District joins California in arguing that AB 699 and the K-

26

12 Model Policies restrict schools from sharing information for immigration purposes potentially prohibited by the nondisclosure condition. See Amicus Brief (CA Dkt. No. 38). According to

27

LAUSD, the State Legislature intended to support the view that “[c]hildren should be able to learn without fear and disruptions.” S. Comm. on Education, analysis of AB 699, 2017- 2018 Reg.

28

Sess. (passed as amended Sept. 15, 2017). It believes the nondisclosure condition is antithetical to the interests and policies of the State embodied by AB 699 and its K-12 Model Policies.

24

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1 notify employees of records inspections by federal immigration authorities, was indicative of a

2 larger problem in California in which undocumented employees are given an opportunity to leave

3 before immigration officers detect them. Similar notice requirements are at issue with the K-12

4 Model Policies. California also notes that the federal government’s own statements about

5 California laws increase the ambiguity of its Byrne JAG application. See CA RJN Exs. E–G

6 (citing the Acting ICE Director’s statements suggesting that California laws violate the

7 nondisclosure requirement).

8

The DOJ argues that intent is required to make an attempt to disclose information, even an

9 indirect one. Perhaps so, but this does not clarify what conduct is proscribed; it merely leaves the

10 AAG with authority to determine a violation “without regard to whether such disclosure would

11 constitute (or could form a predicate for) a violation of 18 U.S.C. 1071 or 1072 or of 8 U.S.C.

12 1324(a).” Id.

13

Even if Congress provided the DOJ with authority to impose the nondisclosure condition

14 within the duty of Section 10102(a)(2) to “maintain liaison” or other laws (which I found was not

15 the case), the breadth of the condition’s scope render it ambiguous. It is not an answer to refer

16 questions to the Office of Justice Programs—the scope must be clear from the condition so that

17 prospective Byrne JAG applicants may make an informed choice, cognizant of the consequences.

18 IV. ARBITRARY AND CAPRICIOUS CLAIM

19

The DOJ moves to dismiss or for summary judgment on California’s arbitrary and

20 capricious APA claim. It asserts that the claim fails because its reasons for imposing the condition

21 and requirements “were entirely rational.” FCC v. Fox Television Stations, Inc., 556 U.S. 502,

22 517 (2009). The DOJ insists that it was reasonable for the Office of Justice Programs to deny

23 federal law enforcement funding to a jurisdiction that publicly discloses sensitive information in

24 an attempt to harbor unlawful immigrants or fugitives from detection, or for refusing to provide

25 information about its laws or policies on communicating with federal authorities.

26

In APA claims asserting that agency action was “arbitrary, capricious, an abuse of

27 discretion, or otherwise not in accordance with law,” 5 U.S.C. § 706(2)(A), the defendant agency

28 is required to “examine the relevant data and articulate a satisfactory explanation” for their 25

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1 actions. Motor Vehicle Mfrs. Ass’n of U.S., Inc. v. State Farm Mut. Auto. Ins. Co., 463 U.S. 29, 43

2 (1983). Actions with a “rational connection between the facts found and the choice made” are

3 valid. Id. In contrast, agency action should be overturned if the agency relied on factors Congress

4 did not intend for it to consider, failed to consider important aspects of the problem, or its decision

5 was counter to the evidence before it. Id. Thus, the reviewing court should “not supply a

6 reasoned basis for the agency’s action that the agency itself has not given,” and should “uphold a

7 decision of less than ideal clarity if the agency’s path may reasonably be discerned.” Bowman

8 Transp., Inc. v. Arkansas-Best Freight Sys., Inc., 419 U.S. 281, 285–86 (1974) (internal citation

9 omitted).

10

The complete administrative record includes 1867 pages of documents. See Admin.

11 Record (SF Dkt. No. 26; CA Dkt. No. 28). The DOJ argues its agency action for the new

12 conditions was reasonable given an Office of Inspector General Memorandum regarding potential

13 violations of Section 1373 (AR00366), emails to Byrne JAG grantees and state administering

14 agencies (AR00392–97), the Backgrounder on Grant Requirements (AR00993), and social media

15 posts from Oakland Mayor Libby Schaff (AR01038–39).

16

The 2016 OIG Memorandum and Backgrounder on Grant Requirements are the same

17 documents that the DOJ unsuccessfully relied upon in the prior related litigation, and in City of

18 Philadelphia, 280 F. Supp. 3d at 619–625. I found that the OIG Memorandum could not be relied

19 on for establishing a “rational connection between the facts found and the choice made” because

20 the choice to impose a Section 1373 condition was made before the Memorandum was issued, and

21 the document did not purport to offer any post-hoc rationalizations for the decision. State Farm,

22 463 U.S. at 43. To rely on it would be circular as “a report concluding that many jurisdictions are

23 not complying with Section 1373 does not justify imposing a condition requiring those

24 jurisdictions to certify compliance.” City of Philadelphia, 280 F. Supp. 3d at 624.

25

I have discussed why the Backgrounder is insufficient in two prior Orders. See City & Cty.

26 of San Francisco, 349 F. Supp. 3d at 964; see also State ex rel. Becerra v. Sessions, 284 F. Supp.

27 3d 1015, 1032 (N.D. Cal. 2018). To summarize the problem again, “[t]here is not a clear

28 link…between localities keeping release dates or contact information confidential and more

26

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1 dangerous or less safe communities.” City & Cty. of San Francisco, 349 F. Supp. 3d at 964. This

2 record concerns the fiscal year 2017 conditions, so it also lacks any explanation of the new

3 nondisclosure condition.

4

Next, the DOJ cites two emails to Byrne JAG grantees and state agencies for the first time

5 in this court and contends that they show the Section 1373 certification condition was put in place

6 to protect the exchange of information between federal, state, and local law enforcement. AR-

7 00392–97. Contrary to this claim, the emails merely provide “updated guidance” on Section 1373.

8 Id. There is no portion of the emails that “articulate a satisfactory explanation for [the DOJ’s]

9 action.” State Farm, 463 U.S. at 43.

10

Finally, the DOJ relies on social media posts from the Oakland’s mayor to justify its

11 imposition of fiscal year 2018 conditions. AR-01038–39. The posts are a new addition to the

12 administrative record. They disclose that ICE “is preparing to conduct an operation in the Bay

13 Area” within the next 24 hours and provide a link for residents to click-through to understand their

14 legal rights in the event of being detained. Id.

15

California asserts that there is no evidence that one disclosure is indicative of a larger

16 problem and that the nondisclosure condition is broader than what is necessary to address the

17 problem. I disagree with the first contention. If the facts are as DOJ suggests, it does not need to

18 wait for a larger number of disclosures of imminent law enforcement operations to justify acting.

19 Treating the nondisclosure condition as a response to Mayor Schaff’s disclosure at least begins to

20 approach what the Court in Bowman described as “a decision of less than ideal clarity [in which]

21 the agency’s path may reasonably be discerned.” Bowman Transp., 419 U.S. at 286.

22

At the same time, the social media screenshots by themselves fail to explain the DOJ’s

23 decision to impose a nondisclosure condition that has much broader scope and application than the

24 situation that purportedly inspired the condition. See State Farm, 463 U.S. at 50 (“It is well-

25 established that an agency’s action must be upheld, if at all, on the basis articulated by the agency

26 itself.”) (internal citation omitted). Ultimately there are still “no findings and no analysis” in the

27 administrative record “to justify the choice made” if the only document that supports a condition is

28 a screenshot of the posts themselves. See Burlington Truck Lines, Inc. v. United States, 371 U.S.

27

Case 3:18-cv-05169-WHO Document 47 Filed 03/04/19 Page 28 of 31

United States District Court Northern District of California

1 156, 167 (1962)(no support for remedy chosen by the Interstate Commerce Commission).

2

On this record the agency has not provided an articulated basis for the condition as drafted.

3 The DOJ’s justification and reliance on the social media posts without more, does not establish a

4 “product of reasoned decision making.” State Farm, 463 U.S. at 52. Although I can hypothesize

5 how a nondisclosure condition in a significantly narrower form could be a reasonable response,

6 there is a conspicuous lack of a record surrounding why the condition was imposed in its current

7 form, where it could be used wittingly or unwittingly as a Trojan horse for acts and interpretations

8 of the law that this court and others across the country have enjoined. Burlington Truck Lines, 371

9 U.S. 156, 168 (1962) (“courts may not accept appellate counsel’s post hoc rationalizations for

10 agency action.”). I cannot fill-in my own or counsel’s discretion for that of the agency.

11 Accordingly, I find that the challenged conditions are arbitrary and capricious under the APA.

12 V. 13

INJUNCTIVE RELIEF The parties raise a now familiar dispute over the scope of the injunctive relief that is

14 merited in this case. According to principles of equity, a permanent injunction is appropriate

15 when: (i) a plaintiff “suffered an irreparable injury;” (ii) available remedies at law are

16 “inadequate;” (iii) the “balance of hardships” between the parties supports an equitable remedy;

17 and (iv) public interest is “not disserved.” eBay Inc. v. MercExchange, LLC, 547 U.S. 388, 391

18 (2006). California and San Francisco are entitled to a permanent injunction in light of the finding

19 that the fiscal year 2018 challenged conditions violate the separation of powers.

20

The remaining question is whether injunctive relief should have nationwide scope.

21 Because the parties have stipulated to incorporating the arguments and supporting documents from

22 the 2017 Byrne JAG litigation, the same record that supported a permanent nationwide injunction

23 supports one here. Additionally, San Francisco and California provide evidence that the new

24 fiscal year 2018 conditions apply and cause harm to jurisdictions nationwide. See SF RJN Ex. B,

25 Chyi Decl. Ex. C (SF), Wright Decl. Ex. C (Somerville, Massachusetts); Nair Decl., Ex. 2

26 (Albuquerque, New Mexico). The conditions will continue to apply to jurisdictions without an

27 injunction. See Jerzyk Decl. (Central Falls, Rhode Island); Wright Decl. (Somerville,

28 Massachusetts); Reeve Decl. (Portland, Oregon); Springer Decl. (Denver, Colorado); Pittman 28

Case 3:18-cv-05169-WHO Document 47 Filed 03/04/19 Page 29 of 31

United States District Court Northern District of California

1 Decl. (Seattle, Washington); Segal Decl. (Minneapolis, Minnesota); Nair Decl. (Albuquerque,

2 New Mexico); Muhammad Decl. (Chicago, Illinois).9

3

The DOJ offers the three arguments against a nationwide injunction that it made in the

4 prior related litigation. First, it believes that plaintiffs lack standing to seek a nationwide

5 injunction. It asserts the plaintiffs’ “remedy must be limited to the inadequacy that produced

6 [their] injury in fact,” and therefore a nationwide injunction here would violate Article III

7 standing. See Gill v. Whitford, 138 S. Ct. 1916 (2018) (rejecting standing for a statewide

8 gerrymandering challenge because a plaintiff’s remedy must be limited to his injury). Second, it

9 restates the concern, of which I am mindful, that nationwide injunctions risk preventing “legal

10 questions from percolating through the federal courts, encouraging forum shopping, and making

11 every case a national emergency for the courts and for the Executive Branch.” Trump v. Hawaii,

12 138 S. Ct. 2392, 2425 (2018) (Thomas, J., concurring). Finally, similar litigation is pending in

13 other jurisdictions. See City of Los Angeles v. Whitaker, No. 2:18-cv-07347-R-JC (C.D. Cal.);

14 City of Chicago v. Whitaker, No. 1:18-cv-06859 (N.D. Ill.); City of New York v. Whitaker, No.

15 1:18-cv-06474-ER (S.D.N.Y.); City of Providence v. Whitaker, No. CA-18-437-JJM-LDA

16 (D.R.I.).

17

Neither party offers convincing reasons for me to deviate from the prior Order in the

18 related 2017 litigation. The appropriateness of nationwide injunctive relief for the 2017 Byrne

19 JAG conditions applies equally in 2018. See City & Cty. of San Francisco, 349 F. Supp. 3d at 973

20 (granting but staying the nationwide injunction because the Ninth Circuit might disagree about the

21 constitutionality of Section 1373 and “because the laws and practices of each ‘sanctuary’

22 jurisdiction differ.”).

23

California and San Francisco have shown that Section 1373 is unconstitutional and that

24 there is a violation of the separation of powers, which supports nationwide relief. City & Cty. of

25

26

9 Amici 46 Counties, Cities, and Local Government Organizations further shed light on the benefits of the Byrne JAG Program, as well as the far-reaching consequences of the fiscal year

27

2018 challenged conditions. See Amicus Brief (SF Dkt. No. 54). They argue that a nationwide injunction is the only remedy for local governments that are faced with the precarious decision to

28

submit to the DOJ’s conditions or forego important funding for local programs that benefit their communities. Id. at 10–12.

29

Case 3:18-cv-05169-WHO Document 47 Filed 03/04/19 Page 30 of 31

United States District Court Northern District of California

1 San Francisco, 897 F.3d at 1232; see also Int'l Refugee Assistance Project v. Trump, 857 F.3d

2 554, 605 (4th Cir. 2017) (finding that relief limited to the parties in suit where there was a likely

3 constitutional violation “would not cure the constitutional deficiency, which would endure in all

4 [its] applications.”). As set forth above, the nondisclosure condition is defective for different

5 reasons. But those reasons are also applicable to jurisdictions throughout the country; no factual

6 differences would cause a different legal conclusion. Accordingly, I grant the injunction in favor

7 of plaintiffs but stay its nationwide scope.

8 VI. MANDAMUS RELIEF

9

California seeks mandamus relief to compel the DOJ to issue and disburse fiscal year 2018

10 Byrne JAG funds without the challenged conditions. CA FAC ¶ 138; Prayer for Relief ¶ 4. The

11 DOJ disputes the need for mandamus relief in a footnote, stating that it already issued fiscal year

12 2018 Byrne JAG awards to California and its subdivisions and has mooted this request. However,

13 the parties agreed to an extension on the deadline for accepting the awards until after I rule on the

14 dispositive motions at issue here. Sherman Decl., Ex. 7.

15

Consistent with the TRAC factors traditionally used to evaluate mandamus relief, I find

16 that the facts support mandamus relief for California. See Indep. Min. Co. v. Babbitt, 105 F.3d

17 502, 507 (9th Cir. 1997) (citing Telecommc'ns. Research & Action v. FCC (TRAC), 750 F.2d 70,

18 79–80 (9th Cir. 1984)).

19

(1) the time agencies take to make decisions must be governed by a rule of reason;

20

(2) where Congress has provided a timetable or other indication of the speed with

which it expects the agency to proceed in the enabling statute, that statutory scheme

21

may supply content for this rule of reason; (3) delays that might be reasonable in the

sphere of economic regulation are less tolerable when human health and welfare are

22

at stake; (4) the court should consider the effect of expediting delayed action on

23

agency activities of a higher or competing priority; (5) the court should also take into account the nature and extent of the interests prejudiced by delay; and (6) the court

24

need not find any impropriety lurking behind agency lassitude in order to hold that

agency action is unreasonably delayed.

25

26 750 F.2d at 80 (citations and internal quotation marks omitted).

27

The Byrne JAG formula grant is an annual program; delay in disbursal impacts human

28 health and welfare dependant on the Byrne JAG funded programs. It remains undisputed that

30

Case 3:18-cv-05169-WHO Document 47 Filed 03/04/19 Page 31 of 31

United States District Court Northern District of California

1 California risks discontinuing its Byrne JAG programs if it loses funding. Expediting disbursal

2 would not prejudicially affect the federal government’s related interests in federal immigration

3 enforcement or maintaining the confidentiality of law enforcement information. Mandamus relief

4 is appropriate.

5

CONCLUSION

6

For the reasons stated, California and San Francisco’s motions for summary judgment are

7 GRANTED and the DOJ’s motions for partial dismissal or partial summary judgment are

8 DENIED. Plaintiffs shall prepare a proposed judgment and shall meet and confer with the DOJ

9 concerning its form. Within two weeks of this Order, the parties shall either submit a stipulated

10 form of judgment or two competing versions, with DOJ’s proposed revisions to plaintiff’s form in

11 track changes, along with a Joint Statement if necessary of no more than five pages in length

12 explaining any disagreements.

13

IT IS SO ORDERED.

14 Dated: March 4, 2019

15

_______________________

William H. Orrick

16

United States District Judge

17

18

19

20

21

22

23

24

25

26

27

28 31

 
 Case 3:18-cv-05169-WHO Document 51 Filed 03/26/19 Page 1 of 4

1 XAVIER BECERRA Attorney General of California
2 MICHAEL L. NEWMAN Senior Assistant Attorney General
3 SARAH E. BELTON Supervising Deputy Attorney General
4 GARRETT M. LINDSEY CHEROKEE DM MELTON
5 LEE I. SHERMAN (SBN 272271) Deputy Attorneys General
6 300 South Spring Street, Suite 1702 Los Angeles, CA 90013
7 Telephone: (213) 269-6404 Fax: (213) 897-7605
8 E-mail: Lee.Sherman@doj.ca.gov Attorneys for Plaintiff State of California
9

10

IN THE UNITED STATES DISTRICT COURT

11

FOR THE NORTHERN DISTRICT OF CALIFORNIA

12

SAN FRANCISCO DIVISION

13

14

STATE OF CALIFORNIA, ex rel, XAVIER JUDGMENT AND ORDER GRANTING

15 BECERRA, in his official capacity as

PLAINTIFFS’ MOTIONS FOR

Attorney General of the State of California, SUMMARY JUDGMENT

16

Plaintiff, Judge:

Honorable William H. Orrick

17

Trial Date: None Set

v.

Action Filed: August 23, 2018

18

WILLIAM P. BARR, in his official capacity

19 as Attorney General of the United States, et

al.,

Case No. 18-cv-5169-WHO

20

Defendants.

21

CITY AND COUNTY OF SAN 22 FRANCISCO,

23

Plaintiff,

24

v.

25 WILLIAM P. BARR, in his official capacity

as Attorney General of the United States, et 26 al.,

27

Case No. 18-cv-5146-WHO Defendants.

28

Judgment and Order Granting Plaintiffs’ Motions for Summary Judgment (18-cv-5169-WHO and 18-cv-5146-WHO)

Case 3:18-cv-05169-WHO Document 51 Filed 03/26/19 Page 2 of 4

1

Plaintiffs challenged five requirements for FY 2018 Edward Byrne Memorial Justice

2 Assistance Grants, herein referred to as the FY 2018 Immigration Enforcement Requirements,

3 found in paragraphs 41, 42, 43, 44, 45, 46, and 47 of Exhibit D of the Request for Judicial Notice

4 filed by Defendants as Docket Number 25-1 in State of California, ex rel, Xavier Becerra v.

5 Whitaker, No. 18-cv-5169, and paragraphs 41, 42, 43, 44, 45, 46, and 47 of Exhibit C of the

6 Request for Judicial Notice filed by Defendants as Docket Number 27-1 in City and County of

7 San Francisco v. Whitaker, No. 18-cv-5146. On December 21, 2018, Plaintiff State of California,

8 ex rel., Xavier Becerra, California Attorney General (“the State” or “California”) and Plaintiff

9 City and County of San Francisco (“San Francisco”) (collectively, “Plaintiffs”) filed Motions for

10 Summary Judgment (“Plaintiffs’ Motions”). On December 3, 2018 Defendants filed a Partial

11 Motion to Dismiss and Partial Motion for Summary Judgment (“Defendants Motion,” collectively

12 with Plaintiffs’ Motions, “the Motions”). A hearing on the Motions was held on February 13,

13 2019, at 2:00 p.m.

14

On March 4, 2019, I granted Plaintiffs’ Motions and denied Defendants’ Motion (CA Dkt.

15 No. 47; SF Dkt. No. 60). Pursuant to Federal Rule of Civil Procedure 58, I hereby ENTER

16 judgment in favor of Plaintiffs and against Defendants, and grant the following relief as set forth

17 below:
DECLARATION 18
The Court finds declaratory relief under 28 U.S.C. § 2201 is appropriate in this case. It is 19
hereby DECLARED that: 20
1. The FY 2018 Immigration Enforcement Requirements are unconstitutional and 21
unlawful because they: (i) exceed the congressional authority conferred on the 22
Executive Branch and are ultra vires on their face; (ii) they exceed Congress’s 23
spending powers under Article I of the Constitution to the extent Congress conferred 24
authority on the Attorney General; and (iii) they violate the Administrative Procedure 25
Act. 26
2. 8 U.S.C. § 1373 is unconstitutional on its face under the Tenth Amendment of the 27
United States Constitution. 28
1
Judgment and Order Granting Plaintiffs’ Motions for Summary Judgment (18-cv-5169-WHO and 18-cv-5146-WHO)

Case 3:18-cv-05169-WHO Document 51 Filed 03/26/19 Page 3 of 4

1

PERMANENT INJUNCTION

2

The Court also finds that each of the necessary elements for issuing a permanent injunction

3 is met. In particular, the Court finds that Plaintiffs have succeeded on the merits of their claims

4 and that absent an injunction Plaintiffs would suffer irreparable injury; the balance of equities

5 favor Plaintiffs; and the requested relief is in the public interest. Pursuant to Federal Rule of Civil

6 Procedure 65, it is now ORDERED that Defendants ARE HEREBY RESTRAINED AND

7 ENJOINED from committing, performing, directly or indirectly, the following acts:

8

1. Using the FY 2018 Immigration Enforcement Requirements as conditions for Byrne

9

JAG funding for any California state entity, San Francisco, any California political

10

subdivision, or any jurisdiction in the United States.

11

2. Withholding, terminating, or clawing back JAG funding from, or disbarring or

12

making ineligible for JAG, any California state entity, San Francisco, any California

13

political subdivision, or any jurisdiction in the United States on the basis of the FY

14

2018 Immigration Enforcement Requirements.

15

3. Withholding, terminating, or clawing back JAG funding from, or disbarring or

16

making ineligible for JAG, any California state entity or any California political

17

subdivision on account of any grant condition challenged in this lawsuit and based on

18

California Government Code section 7282 et seq. (the “TRUST Act”); California

19

Government Code section 7283 et seq. (the “TRUTH Act”); California Government

20

Code section 7284 et seq. (the “Values Act”).

21

4. Enforcing 8 U.S.C. § 1373’s statutory obligations against any California state entity

22

or political subdivision.

23

Consistent with my March 4, 2019 Order granting Plaintiffs’ Motions, it is now ORDERED

24 that the nationwide aspect of the permanent injunctive relief set forth above is STAYED until

25 further rulings from the Ninth Circuit.

26

MANDATORY INJUNCTION

27

As set forth in my March 4, 2019 Order, I found all the necessary elements for issuing

28 California mandamus relief are met. I hereby ORDER defendants to issue without further delay
2
Judgment and Order Granting Plaintiffs’ Motions for Summary Judgment (18-cv-5169-WHO and 18-cv-5146-WHO)

Case 3:18-cv-05169-WHO Document 51 Filed 03/26/19 Page 4 of 4

1 the fiscal year 2018 JAG awards, without enforcement of the enjoined conditions, and JAG

2 funding, upon a jurisdiction’s acceptance of the award, to the California Board of State and

3 Community Corrections, and all California political subdivisions that applied for JAG awards for

4 fiscal year 2018. Acceptance of the FY 2018 awards by the California Board of State and

5 Community Corrections or any California political subdivision shall not be construed as

6 acceptance of the enjoined conditions. After the jurisdiction or entity accepts the fiscal year 2018

7 award, Defendants are further ORDERED to process and approve the jurisdiction’s requests for

8 drawdowns of the jurisdiction’s fiscal year 2018 JAG funds as it would in the ordinary course,

9 and without regard to the enjoined conditions, compliance with 8 U.S.C. § 1373, or whether the

10 jurisdiction spent its own money on the program or activity funded.

11

IT IS SO ORDERED

12

DATED: March 26, 2019

13

____________________________

Hon. William H. Orrick

14

United States District Judge

15

16

17

18

19

20

21

22

23

24

25

26

27

28
3
Judgment and Order Granting Plaintiffs’ Motions for Summary Judgment (18-cv-5169-WHO and 18-cv-5146-WHO)