Opinion ID: 725554
Heading Depth: 3
Heading Rank: 2

Heading: The INS's Interpretation of the Statute

Text: 35 As the statute itself does not define the scope of the Fleuti doctrine as applied to legalization applicants, we must look beyond the statute to find the answer. In so doing, we first turn to the INS's own construction of the statute. Chevron, 467 U.S. at 843, 104 S.Ct. at 2782. 36
37 The INS argues that § 1255a(a)(3)(B) is not intended to act as a border-crossing mechanism. In practice, however, the INS developed the advance parole regulations to monitor legalization applicants' departure from and readmission into this country. See 8 C.F.R. §§ 245a.2(m)(1) & (n)(2). From what source does the INS derive its authority to permit legalization applicants to cross and re-cross the border? It is, of course, § 1255a(a)(3)(B)'s brief, casual, and innocent language. 38 8 C.F.R. § 245a.2(l) provides guidance on § 1255a(a)(3)'s continuous physical presence requirement. Subsection (2) of that regulation provides in pertinent part: A brief, casual and innocent absence means a departure authorized by the Service (advance parole). 8 C.F.R. § 245a.2(l)(2) (emphasis added). This regulation unambiguously and clearly reveals that the INS interprets the brief, casual, and innocent language of § 1255a(a)(3)(B) as a border-crossing mechanism. The very existence of the contested regulation belies the INS's argument. Through the authority derived from subsection (B), the INS created admission procedures entitling legalization applicants to be readmitted to the country. Thus, contrary to its argument, the INS has construed subsection (B) as a border-crossing mechanism. 39
40 We next must decide whether the INS's construction of the statute is permissible. That is, is it permissible to construe subsection (B) as a border-crossing mechanism? We conclude that it is. 41 The Fleuti doctrine itself is a border-crossing mechanism, whereby lawful resident aliens are not deemed to have entered the country if an absence was not intended meaningfully to disrupt permanent residency in the United States. 374 U.S. at 462, 83 S.Ct. at 1812. Given the historical function of the Fleuti doctrine, the INS was perfectly justified in concluding that Congress intended § 1255a(a)(3)(B) to extend to the border. See Lorillard, 434 U.S. at 583, 98 S.Ct. at 871-72 (presumption that Congress intends statutory phrases adopted from common law to have the same well-known meaning of common law). 42 Moreover, the legislative history confirms that Congress was well aware of the historical meaning of the Fleuti doctrine when it enacted § 1255a(a)(3)(B). De Oliveira v. United States INS, 873 F.Supp. 338, 343 (C.D.Cal.1994) (citing H.R.Rep. No. 682(I), 99th Cong., 2d Sess. 116 (1986), reprinted in 1986 U.S.C.C.A.N. 5649, 5720). 3 Accordingly, because the agency's construction of the statute conforms with congressional intent, we hold that the INS's construction of § 1255a(a)(3)(B) as a border-control mechanism is a permissible construction of the statute. 43