Opinion ID: 592141
Heading Depth: 2
Heading Rank: 5

Heading: Category Three Applicants

Text: 67 This group includes nonimmigrants who were erroneously reinstated 32 to lawful status by the INS sometime after January 1, 1982. Initially, the INS took the position that such reinstatements after January 1, 1982 precluded a nonimmigrant from showing the requisite continuity of unlawful residence. In 1988, the agency's position changed when an INS adjudicator decided Matter of N, 19 I. & N. Dec. 760 (1988). In Matter of N, 19 I. & N. Dec. at 762, a Legalization Appeals Unit (LAU) 33 held that a category three applicant who was reinstated to lawful status after misrepresenting material facts is still eligible for legalization if he or she meets the other statutory requirements under IRCA. 68 Until Matter of N was decided, the INS took the position that such reinstatements, though made erroneously, were enough to defeat the continuous and unlawful residence legalization requirement stated in 8 U.S.C. § 1255a(a)(2)(A) (1988). Before Matter of N was decided, the INS had maintained that category three applicants were ineligible for legalization under IRCA because the reinstatements precluded a showing that their residence in the United States was both continuous and unlawful. 69 The INS argued in district court that its change of position in Matter of N had the effect of mooting plaintiffs' request for injunctive relief. Plaintiffs contended before the district court that the INS has not applied its decision in Matter of N uniformly, leaving some category three applicants without relief. Furthermore, plaintiffs argued that some category three applicants who, before Matter of N was decided, may have been wrongfully denied legalization, are unaware that they may now be eligible for legalization under IRCA. 70 The district court agreed with plaintiffs. The court ordered the INS to review cases involving category three applicants who might have been wrongly denied legalization. On appeal, the INS maintains that the district court's injunction was unnecessary and overbroad. 34 71 District courts have broad remedial powers to redress injuries caused by unlawful agency practices. Perales v. Thornburgh, 967 F.2d 798, 815 (2nd Cir.1992) (finding INS regulations invalid under IRCA, and setting new deadline for legalization applicants and ordering the INS to reopen files); Proyecto San Pablo v. INS, 784 F.Supp. 738, 748-49 (D.Ariz.1991) (ordering agency to reopen applications of those wrongfully denied legalization as a consequence of agency policy found invalid under IRCA); Haitian Refugee Center, Inc. v. Nelson, 694 F.Supp. at 880-81 (ordering the INS to vacate denials and reconsider applications). We do not find that the district court exceeded the scope of its authority in fashioning injunctive relief for category three nonimmigrants. 72 The district court granted injunctive relief in favor of plaintiffs for several reasons. First, the district court was persuaded that the policy change announced in Matter of N was applied unevenly. The court also noted that Matter of N may not provide a remedy for those category three nonimmigrants already prejudiced by the old policy. Finally, the court rejected INS arguments that court-ordered relief was unnecessary because category three nonimmigrants could request reconsideration of their applications and because the agency could reopen cases on its own initiative. 73 The district court properly rejected these arguments. Even if we agree with the INS that its current procedure would permit applicants to request that the agency reconsider applications if they were wrongfully denied, 35 we are not convinced that this procedure provides an adequate remedy. 74 The district court found agency procedures for reopening legalization applicants' files incomprehensible, particularly for the majority of applicants who are not represented by counsel. See Immigration Assistance I, 709 F.Supp. at 1004. Plaintiffs also point out that many applicants will be unaware of the change in INS policy and procedures resulting from Matter of N and their implications. We agree with the district court that the burden of the agency's own invalid policies should not fall on individuals whose applications for legalization were wrongfully denied. 36 75 Finally, the INS argues on appeal that category three applicants are not entitled to injunctive relief if they failed to file administrative appeals to challenge the agency's wrongful denial of their application for legalization. The agency relies on Pittston Coal Group v. Sebben, 488 U.S. 105, 109 S.Ct. 414, 102 L.Ed.2d 408 (1988) to support its position. 76 The agency's reliance on Sebben is misplaced. The Supreme Court's decision in Sebben is inapposite. First, the plaintiffs in Sebben initially petitioned the district court for a writ of mandamus. The Court held that such relief was inappropriate. The Court emphasized the extraordinary nature of mandamus and concluded that it would order such relief only to compel performance of a clear nondiscretionary duty. Sebben, 488 U.S. at 121, 109 S.Ct. at 424. By contrast, plaintiffs in the present case were awarded only declaratory and injunctive relief. Second, the Court in Sebben stressed that respondents would have been vindicated had they pursued administrative and judicial remedies. Sebben, 488 U.S. at 123, 109 S.Ct. at 424. In the present case, category three applicants who were wrongly denied legalization had slim prospects of winning an administrative appeal before the INS decided Matter of N. 77 Third, the Court's opinion in Sebben rested primarily on principles of res judicata. That principle is not operative in the present case. In Sebben, petitioners' failure to pursue administrative and judicial remedies made the agency's decision against them a final determination. In such cases, the agency's decision should bind individuals who fail to pursue their statutory remedies. By contrast, INS rulings on individual applications are not final determinations. For example, any applicant denied legalization may still seek review of a deportation order in federal circuit court. 8 U.S.C. §§ 1105a, 1255a(f)(4) (1988). Consequently, failure to follow prescribed administrative appeal procedures should not have the same preclusive effect. 78 Contrary to the agency's argument, Sebben does not preclude relief for category three applicants who were wrongly denied legalization but failed to appeal the agency's decision. The injunctive relief issued by the district court for category three applicants should apply to all individuals in this category whether or not they appealed the agency's decision. 79