Opinion ID: 510206
Heading Depth: 1
Heading Rank: 2

Heading: the adjustment of status regime

Text: 5 Before 1935, neither statute nor administrative practice permitted adjustment of the status of an alien already in the United States; to achieve reclassification from nonimmigrant to permanent resident status, the alien had to leave the country and, in the ordinary course, apply to a United States consular officer abroad for an immigrant visa. See 8 U.S.C. Sec. 202(a) (1934); Centeno v. Shultz, 817 F.2d 1212, 1214 (5th Cir.1987), cert. denied, --- U.S. ----, 108 S.Ct. 696, 98 L.Ed.2d 648 (1988) (adhering to position that decisions of United States consuls on visa matters are nonreviewable by the courts). 6 To reduce the hardship and inconvenience of this depart and seek reentry procedure, the Immigration Service devised a pre-examination plan which made accessible to some aliens a less expensive process: after screening by immigration officials here, the alien could travel briefly to Canada and there acquire from a United States consular officer the sought-after immigrant visa. See S.REP. 1515, 81st Cong., 2d Sess. 603 (1950); 8 C.F.R. Sec. 142 (Supp.1941). If the alien, once in Canada, failed to pass the consular officer's checks, he would be sent back to the United States, pursuant to an agreement with Canada; promptly upon his return, deportation proceedings would be instituted against him. See 8 C.F.R. Sec. 142.18 (Supp.1941). The alien would have no opportunity, in those proceedings, to gain a status adjustment. 7 In 1952, in the new Immigration and Nationality Act, Congress itself addressed the matter. Section 245 of the Act, codified at 8 U.S.C. Sec. 1255, enabled an alien, under specified conditions, to obtain an immigrant visa without the necessity of leaving the United States. See H.R.REP. 2096, 82d Cong., 2d Sess. 128 (1952), U.S.Code Cong. & Admin.News 1952, p. 1653. The prescription currently in force permits 8 [t]he status of an alien who was inspected and admitted or paroled into the United States [to] be adjusted by the Attorney General, in his discretion and under such regulations as he may prescribe, to that of an alien lawfully admitted for permanent residence if (1) the alien makes an application for such adjustment, (2) the alien is eligible to receive an immigrant visa and is admissible to the United States for permanent residence, and (3) an immigrant visa is immediately available to him at the time his application is filed. 9 8 U.S.C. Sec. 1255(a); see Jain v. INS, 612 F.2d 683, 687 (2d Cir.1979) (adjustment of status under 245 is extraordinary relief, therefore burden is on alien to persuade Immigration Service to exercise its discretion favorably), cert. denied, 446 U.S. 937, 100 S.Ct. 2155, 64 L.Ed.2d 789 (1980); see also T. ALEINIKOFF & D. MARTIN, IMMIGRATION PROCESS AND POLICY 282-83, 288-92 (1985). 10 By thus authorizing the Attorney General (and, under his delegation, Immigration Service officers) to grant permanent resident status, Congress afforded aliens present in this country on nonimmigrant visas a marked advantage over the alien who could receive an immigrant visa only from a consular officer abroad. The alien in the United States, through the regulations implementing the congressional prescription, now has dual opportunities to seek permanent resident status. First, he may apply for relief to the district director having jurisdiction over his place of residence. 8 C.F.R. Sec. 245.2(a)(1). Should the alien fail to gain adjustment at this stage, he is entitled to a de novo review of his application in the context of deportation proceedings. See 8 C.F.R. Secs. 242.17(a), 245.2(a)(5)(ii). 11 Proceedings before the district director may be summary. Service instructions state: 12 Unless a case involves complex questions of fact or law, the adjudicator shall complete an interview of an individual or family group within a period of 15-30 minutes. In no event may an interview exceed 30 minutes without the authority of a supervisory immigration examiner. 13 INS Operating Instructions 245.36, reprinted in 4 C. GORDON & H. ROSENFELD, IMMIGRATION LAW AND PROCEDURE at 25-251 (1987). Reflecting the abbreviated course this first process may take, and the prospect of a second, closer look, the regulations preclude a direct administrative appeal from a district director's denial of a status adjustment application. 8 C.F.R. Sec. 245.2(a)(5)(ii). 14 Unlike the alien of an earlier day whose sole recourse was to a consular officer abroad, however, the alien in the United States seeking status adjustment today may obtain full consideration of his application in deportation proceedings. See 8 C.F.R. Secs. 242.17(a), 245.2(a)(5)(ii); see also Jain v. INS, 612 F.2d at 689 (finding without merit argument that alien seeking status adjustment was denied due process because he was unable to appeal [district director's] denial of his ... application directly and could only do so in the context of deportation proceedings). At this stage, the alien is accorded a plenary hearing; he has the right to be represented by counsel, to introduce evidence, and to cross-examine. 8 U.S.C. Sec. 1252(b); 8 C.F.R. Sec. 242.16. If the immigration judge rules against the alien, he may appeal to the Board of Immigration Appeals, 8 C.F.R. Secs. 236.7, 242.21, and thereafter, by prescription of the Act itself, to a court of appeals. 8 U.S.C. Sec. 1105a(a). Of prime significance to our resolution of this appeal, the statute sets the venue of a judicial review petition in the judicial circuit in which the administrative proceedings before a special inquiry officer were conducted ... or in the judicial circuit wherein is the residence ... of the petitioner, but not in more than one circuit[.] 8 U.S.C. Sec. 1105a(a)(2).