Eliminating Exception To Expedited Removal Authority for Cuban Nationals Encountered in the United States or Arriving by Sea, 4902-4905 [2017-00914]
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Federal Register / Vol. 82, No. 10 / Tuesday, January 17, 2017 / Notices
DEPARTMENT OF HOMELAND
SECURITY
[Docket No. DHS–2016–0089]
National Infrastructure Advisory
Council
National Protection and
Programs Directorate, DHS.
ACTION: Committee management; notice
of an Open Federal Advisory Committee
meeting.
AGENCY:
The National Infrastructure
Advisory Council (NIAC) will meet
Thursday, February 16, 2017, at 1331 F
Street NW., Suite 1000, Washington, DC
20004. This meeting will be open to the
public.
DATES: The NIAC will meet on February
16, 2017. The meeting will be held from
1:30 p.m.–4:30 p.m. EST. The meeting
may close early if the committee has
completed its business. For additional
information, please consult the NIAC
Web site, www.dhs.gov/NIAC, or contact
the NIAC Secretariat by phone at (703)
235–2888 or by email at NIAC@
hq.dhs.gov.
SUMMARY:
1331 F Street NW., Suite
1000, Washington, DC 20004. Members
of the public will register at the
registration table prior to entering the
meeting room. For information on
facilities or services for individuals with
disabilities, or to request special
assistance at the meeting, contact the
person listed under FOR FURTHER
INFORMATION CONTACT below as soon as
possible.
To facilitate public participation, we
are inviting public comment on the
issues to be considered by the Council
as listed in the ‘‘Summary’’ section
below. Comments must be submitted in
writing no later than 12:00 p.m. on
February 13, 2017, in order to be
considered by the Council in its
meeting. The comments must be
identified by ‘‘DHS–2016–0089,’’ and
may be submitted by any one of the
following methods:
• Federal eRulemaking Portal: https://
www.regulations.gov. Follow the
instructions for submitting written
comments.
• Email: NIAC@hq.dhs.gov. Include
the docket number (DHS–2016–0089) in
the subject line of the message.
• Fax: (703)235–9707.
• Mail: Ginger Norris, National
Protection and Programs Directorate,
Department of Homeland Security, 245
Murray Lane SW., Mail Stop 0612,
Washington, DC 20598–0607.
Instructions: All written submissions
received must include the words
‘‘Department of Homeland Security’’
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ADDRESSES:
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and the docket number for this action.
Written comments received will be
posted without alteration at
www.regulations.gov, including any
personal information provided.
Docket: For access to the docket or to
read background documents or
comments received by the NIAC, go to
www.regulations.gov. Enter ‘‘NIAC’’ in
the search line and the Web site will list
all relevant documents for your review.
Members of the public will have an
opportunity to provide oral comments
on the topics on the meeting agenda
below, and on any previous studies
issued by the NIAC. We request that
comments be limited to the issues and
studies listed in the meeting agenda and
previous NIAC studies. All previous
NIAC studies can be located at
www.dhs.gov/NIAC. Public comments
may be submitted in writing or
presented in person for the Council to
consider. Comments received by Ginger
Norris on or after 1:00 p.m. on February
16, 2017 will still be accepted and
reviewed by the Members, but not
necessarily at the time of the meeting.
In-person presentations will be limited
to three minutes per speaker, with no
more than 15 minutes for all speakers.
Parties interested in making in-person
comments should register on the Public
Comment Registration list available at
the entrance to the meeting location
prior to the beginning of the meeting.
FOR FURTHER INFORMATION CONTACT:
Ginger Norris, Department of Homeland
Security, National Protection and
Programs Directorate, Office of
Infrastructure Protection, NIAC,
Designated Federal Officer, 245 Murray
Lane SW., Mail Stop 0607, Washington,
DC 20598–0607, telephone 202–441–
5885.
Notice of
this meeting is given under the Federal
Advisory Committee Act, 5 U.S.C.
appendix. The NIAC shall provide the
President, through the Secretary of
Homeland Security, with advice on the
security and resilience of the Nation’s
critical infrastructure sectors. The NIAC
will meet to discuss issues relevant to
critical infrastructure security and
resilience, as directed by the President.
The meeting will commence at 1:00
p.m. EST. At this meeting, the Council
will discuss its newest tasking and
receive briefings. All presentations will
be posted prior to the meeting on the
Council’s public Web page—
www.dhs.gov/NIAC.
SUPPLEMENTARY INFORMATION:
Public Meeting Agenda
I. Opening of Meeting
II. Roll Call of Members
III. Opening Remarks and Introductions
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IV. Approval of SEP 2016 Meeting Minutes
V. Presentations on Future Focus Study
VI. Public Comment
VII. Discussion of New NIAC Business
VIII. Closing Remarks
IX. Adjournment
Dated: January 4, 2017.
Ginger Norris,
Designated Federal Officer for the NIAC.
[FR Doc. 2017–00789 Filed 1–13–17; 8:45 am]
BILLING CODE 9110–9–P
DEPARTMENT OF HOMELAND
SECURITY
Office of the Secretary
[DHS Docket No. DHS–2017–0004]
Eliminating Exception To Expedited
Removal Authority for Cuban Nationals
Encountered in the United States or
Arriving by Sea
Office of the Secretary,
Department of Homeland Security.
ACTION: Notice.
AGENCY:
This notice concerns the
authority of the Department of
Homeland Security (DHS or the
Department) to place certain designated
categories of aliens in expedited
removal proceedings. On November 13,
2002, the former Immigration and
Naturalization Service (INS) of the
Department of Justice issued a notice
designating certain aliens who arrive by
sea, either by boat or other means, as
eligible for placement in expedited
removal proceedings, with an exception
for Cuban citizens or nationals
(hereinafter ‘‘Cuban nationals’’). On
August 11, 2004, DHS issued a notice
designating certain aliens in the United
States as eligible for placement in
expedited removal proceedings, also
with an exception for Cuban nationals.
In light of recent changes in the
relationship between the United States
and Cuba, the Department has
determined that the exceptions for
Cuban nationals, contained in the
designations of November 13, 2002 and
August 11, 2004, are no longer
warranted and are thus hereby
eliminated. The rest of the November
13, 2002 and August 11, 2004
designations, including any
implementing policies, are unaffected
by this notice and remain unchanged.
DATE: This notice is effective on January
13, 2017. Interested persons are invited
to submit written comments on this
notice on or before March 20, 2017.
ADDRESSES: You may submit comments,
identified by DHS Docket Number DHS–
2017–0004, by any one of the following
methods:
SUMMARY:
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• Federal e-Rulemaking Portal
www.regulations.gov. Follow the Web
site instructions for submitting
comments.
• Mail or Hand Delivery/Courier:
Please submit all written comments
(including and CD–ROM submissions)
to Amanda Baran, Principal Director for
Immigration Policy, DHS, 245 Murray
Lane SW., Mail Stop 0445, Washington,
DC 20528.
Please submit your comments by only
one method. Comments received by
means other than those listed above or
received after the comment period has
closed will not be reviewed. All
comments received will be posted
without change on https://
www.regulations.gov. The https://
www.regulations.gov Web site is the
Federal e-rulemaking portal and
comments posted there are available
and accessible to the public.
Commenters should not include
personal information such as Social
Security Numbers, personal addresses,
telephone numbers, and email addresses
in their comments as such information
will become viewable by the public on
the https://www.regulations.gov Web
site. It is the commenter’s responsibility
to safeguard his or her information.
Comments submitted through https://
www.regulations.gov will not include
the commenter’s email address unless
the commenter chooses to include that
information as part of his or her
comment.
Postal delivery in Washington, DC,
may be delayed due to security
concerns. Therefore, DHS encourages
the public to submit comments through
the https://www.regulations.gov Web
site.
Docket: For access to the docket to
read background documents or
comments received, go to the Federal
eRulemaking portal at https://
www.regulations.gov. If you need
assistance to review the comments,
please contact the person identified in
the FOR FURTHER INFORMATION CONTACT
section below.
FOR FURTHER INFORMATION CONTACT:
Amanda Baran, Principal Director for
Immigration Policy, 202–282–8805,
Amanda.baran@hq.dhs.gov.
SUPPLEMENTARY INFORMATION: Section
302 of the Illegal Immigration Reform
and Immigrant Responsibility Act of
1996 (IIRIRA), Public Law 104–208, Div.
C, 110 Stat. 3009–546, amended section
235(b) of the Immigration and
Nationality Act (‘‘Act’’), 8 U.S.C.
1225(b), to authorize the Attorney
General (now the Secretary of Homeland
Security as designated under the
Homeland Security Act of 2002) to
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remove, without a hearing before an
immigration judge, aliens arriving in the
United States and certain other
applicants for admission who are
inadmissible under sections 212(a)(6)(C)
or 212(a)(7) of the Act, 8 U.S.C.
1182(a)(6)(C) and 1182(a)(7), for lack of
valid documents necessary for
admission or entry or for procuring or
seeking to procure a visa, other
immigration-related documentation,
admission to the United States, or other
immigration benefit by fraud or willful
misrepresentation of a material fact.
Expedited removal proceedings under
section 235(b) of the Act, 8 U.S.C.
1225(b), may be applied to two
categories of aliens. First, expedited
removal proceedings may be used for
aliens who are ‘‘arriving in the United
States.’’ Section 235(b)(1)(A)(i) of the
Act, 8 U.S.C. 1225(b)(1)(A)(i). Second,
the Secretary, in his or her sole and
unreviewable discretion, may designate
certain other aliens to whom the
expedited removal provisions may be
applied. Section 235(b)(1)(A)(iii) of the
Act, 8 U.S.C. 1225(b)(1)(A)(iii); see 8
CFR 235.3(b)(1)(ii). Specifically, with
limited exception, the Act authorizes
the Secretary to apply (by designation)
expedited removal proceedings to all or
any subset of aliens who (1) have not
been admitted or paroled following
inspection by an immigration officer at
a designated port-of-entry, and (2) have
not established to the satisfaction of the
immigration officer that they have been
physically present in the United States
continuously for the two-year period
immediately prior to the date of
determination of inadmissibility.
Section 235(b)(1)(A)(iii)(I)–(II), 8 U.S.C.
1225(b)(1)(A)(iii)(I)–(II). The Secretary
may modify such designations at any
time. Id.
On November 13, 2002, the former
INS issued a Federal Register notice
announcing that it was exercising its
authority under section 235(b)(1)(A)(iii)
of the Act, 8 U.S.C. 1225(b)(1)(A)(iii), to
designate additional aliens who may be
placed in expedited removal
proceedings. 67 FR 68924. Specifically,
that notice designated the following
class of aliens who may be placed in
expedited removal proceedings: ‘‘all
aliens who arrive in the United States
by sea, either by boat or other means,
who are not admitted or paroled, and
who have not been physically present in
the United States continuously for the
two-year period prior to a determination
of inadmissibility.’’ Id. The INS noted at
the time that ‘‘[p]lacing these
individuals in expedited removal
proceedings and maintaining detention
for the duration of all immigration
proceedings, with limited exceptions,
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will ensure prompt immigration
determinations and ensure removal
from the country of those not granted
relief in those cases, while at the same
time protecting the rights of the
individuals affected.’’ Id. The INS also
stated that ‘‘exercising its authority to
detain this class of aliens . . . will assist
in deterring surges in illegal migration
by sea, including potential mass
migration, and preventing loss of life.’’
Id. The INS further noted that
preventing illegal migration by sea also
protects national security, as ‘‘[a] surge
in illegal migration by sea threatens
[that] security by diverting valuable
United States Coast Guard and other
resources from counter-terrorism and
homeland security responsibilities.’’ Id.
The November 13, 2002 notice,
however, contained an exception for
Cuban nationals who are otherwise
described in the designated class,
stating that expedited removal
proceedings would not be initiated
against such Cuban nationals who arrive
by sea. Id. The INS based this exception
on ‘‘longstanding U.S. policy to treat
Cubans differently from other aliens,’’
citing the Cuban Adjustment Act, Public
Law 89–732 (1966) (8 U.S.C. 1255 note),
as an example of such treatment. Id. The
notice also cited section 235(b)(1)(F) of
the Act, 8 U.S.C. 1225(b)(1)(F), which at
the time statutorily exempted Cuban
nationals who arrived by aircraft at a
U.S. port of entry from being placed into
expedited removal proceedings because
of the lack of diplomatic relations
between the United States and Cuba.
That section expressly provides that
expedited removal ‘‘shall not apply to
an alien who is a native or citizen of a
country in the Western Hemisphere
with whose government the United
States does not have full diplomatic
relations and who arrives by aircraft at
a port of entry.’’ Section 235(b)(1)(F) of
the Act, 8 U.S.C. 1225(b)(1)(F).
On August 11, 2004, DHS issued a
similar Federal Register notice
announcing that it was exercising its
authority under section 235(b)(1)(A)(iii),
8 U.S.C. 1225(b)(1)(A)(iii), to designate
an additional class of aliens who may be
placed in expedited removal
proceedings. 69 FR 48877. That notice
authorized the Department to place in
expedited removal proceedings any or
all members of the following class of
aliens: ‘‘Aliens determined to be
inadmissible under sections 212(a)(6)(C)
or (7) of the Immigration and
Nationality Act who are present in the
U.S. without having been admitted or
paroled following inspection by an
immigration officer at a designated port
of entry, who are encountered by an
immigration officer within 100 air miles
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of the U.S. international land border,
and who have not established to the
satisfaction of an immigration officer
that they have been physically present
in the U.S. continuously for the
fourteen-day (14-day) period
immediately prior to the date of
encounter.’’ Id. DHS noted at the time
that ‘‘exercising its statutory authority to
place these individuals in expedited
removal proceedings will enhance
national security and public safety by
facilitating prompt immigration
determinations, enabling DHS to deal
more effectively with the large volume
of persons seeking illegal entry, and
ensure removal from the country of
those not granted relief, while at the
same time protecting the rights of the
individuals affected.’’ Id.
Like the November 13, 2002 notice,
the August 11, 2004 notice contained an
exception for Cuban nationals who are
otherwise described in the designated
class and stated that expedited removal
proceedings would not be initiated
against such nationals encountered in
the United States. Id. The notice
similarly based this exception on that
fact that ‘‘removals to Cuba [could not]
presently be assured and for other U.S.
policy reasons,’’ id., citing section
235(b)(1)(F) of the Act, 8 U.S.C.
1225(b)(1)(F), as well.
Since those notices were issued,
significant changes in the relationship
between the United States and Cuba
have occurred. In December 2014,
President Obama announced a historic
opening between the United States and
Cuba, as well as an approach for
reestablishing diplomatic relations and
adjusting regulations to facilitate greater
travel, commerce, people-to-people ties,
and the free flow of information to,
from, and within Cuba. On July 20,
2015, the United States and Cuba
formally reestablished full diplomatic
relations and opened embassies in each
other’s countries. In the time following
the reestablishment of full diplomatic
relations, the United States and Cuba
have taken concrete steps towards
enhancing security, building bridges
between our peoples, and promoting
economic prosperity for citizens of both
countries. And recent migration
discussions have yielded important
changes that will dramatically affect
travel and migration between our two
countries. Among other things, Cuba has
agreed to accept and facilitate the
repatriation of its nationals who are
ordered removed from the United
States. This arrangement and other
changes remain the focus of ongoing
diplomatic discussions between the two
countries.
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DHS also has recently seen a
significant increase in attempts by
Cuban nationals to illegally enter the
United States. Many of those Cuban
nationals have taken a dangerous
journey through Central America and
Mexico; others have taken to the high
seas in the dangerous attempt to cross
the Straits of Florida. DHS believes this
increase in attempted migration has
been driven in part by the perception
that there is a limited window before
the United States will eliminate
favorable immigration policies for
Cuban nationals.
The application of the expedited
removal authorities to Cuban nationals
must reflect these new realities. First,
the Department notes that the statutory
provision categorically barring the use
of expedited removal for certain aliens
who arrive by aircraft at a U.S. port of
entry no longer applies to Cuban
nationals, as the United States and Cuba
have reestablished full diplomatic
relations. See section 235(b)(1)(F) of the
Act, 8 U.S.C. 1225(b)(1)(F). In fact, DHS
and DOJ are promulgating rules in this
issue of the Federal Register, amending
8 CFR 235.3(b)(1)(i) and 1235.3(b)(1)(i)
to strike the regulatory exception for
Cuban nationals arriving by aircraft at a
U.S. port of entry. Second, the improved
relationship between the United States
and Cuba, along with Cuba’s agreement
to accept the repatriation of its
nationals, has eroded certain U.S. policy
justifications for the exception. Finally,
a categorical exception severely impairs
the Government’s ability to remove
unauthorized aliens encountered within
the United States. For these reasons,
DHS has determined, in consultation
with the Department of State, that a
categorical exception from expedited
removal for Cuban nationals is no longer
in the interests of the United States.
Accordingly, this notice eliminates
the categorical exceptions for Cuban
nationals, with respect to both the
November 13, 2002 and August 11, 2004
notices, on a prospective basis,
beginning on January 13, 2017, see 8
CFR 235.3(b)(1)(ii) (designation may be
effective as early as the date of
issuance). As a result, Cuban nationals
encountered on or after January 13, 2017
are included in the classes of aliens
subject to expedited removal as
designated in the November 13, 2002
and August 11, 2004 notices. DHS is not
changing any other aspects of those
designations and, apart from the
modification described above, will
continue exercising its expedited
removal authority as indicated in the
November 13, 2002 and August 11, 2004
notices.
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As it did for the November 13, 2002
and August 11, 2004 notices, and
consistent with implementing
regulations at 8 CFR 235.3(b)(1)(ii), the
Department has determined that good
cause exists to exempt this notice from
the notice-and-comment and 30-day
delayed effective date requirements
under the Administrative Procedure Act
(APA). See 5 U.S.C. 553(b)(3)(B) and
(d)(3). Delaying the implementation of
this notice to allow public notice and
comment would be impracticable and
contrary to the public interest. Congress
explicitly authorized the Secretary to
designate categories of aliens to whom
expedited removal proceedings may be
applied, and made clear that ‘‘[s]uch
designation shall be in the sole and
unreviewable discretion of the Secretary
and may be modified at any time.’’
Section 235(b)(1)(A)(iii)(I) of the Act, 8
U.S.C. 1225(b)(1)(A)(iii)(I).
Moreover, as with the August 11,
2004 notice, the designation in this
notice is necessary to remove quickly
from the United States aliens who are
encountered shortly after illegally
entering across U.S. land borders. The
ability to detain such aliens while
admissibility and identity are
determined and protection claims are
adjudicated, as well as to quickly
remove those without protection claims
or claims to lawful status, is a necessity
for national security and public safety.
DHS has determined that prepromulgation notice and comment
would undermine these interests, while
endangering human life and having a
potential destabilizing effect in the
region. Among other things, such
opportunity for notice and comment
could result in a surge in migration of
Cuban nationals seeking to travel to and
enter the United States prior to the
effectuation of the changes announced
in this notice. Such a surge would
threaten national security and public
safety by diverting valuable Government
resources from counterterrorism and
homeland security responsibilities. See
Matter of D–J-, I. & N. Dec. 572, 579
(A.G. 2003). A surge could also have a
destabilizing effect on the region, thus
weakening the security of the United
States and threatening its international
relations. Additionally, a surge in
migration over land or sea could result
in significant loss of human life. For the
foregoing reasons, the Department has
determined that public notice and
comment prior to promulgation of this
notice would be impracticable and
contrary to the public interest.
In addition, the change implemented
by this notice is part of a major foreign
policy initiative announced by the
President, and is central to ongoing
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diplomatic discussions between the
United States and Cuba with respect to
travel and migration between the two
countries. DHS, in consultation with the
Department of State, has determined
that eliminating the exception from
expedited removal proceedings for
Cuban nationals involves a foreign
affairs function of the United States, 5
U.S.C. 553(a)(1), and that this notice is
exempt from APA procedural
requirements on that basis.
Finally, and for the same reasons
described above, DHS finds that delay
caused by publication would adversely
affect the interests of the United States
and the effective enforcement of the
immigration laws, and therefore invokes
8 CFR 235.3(b)(1)(ii) to make this
designation effective immediately upon
placement on public inspection.
Although advance notice and
comment procedures are not in the
interests of the United States with
respect to this notice, DHS is interested
in receiving comments from the public
on the elimination of the categorical
exception for Cuban nationals. DHS
believes that by maintaining a dialogue
with interested parties, DHS may be
better positioned to ensure that the
program is even more effective in
combating and deterring illegal entry,
while at the same time protecting the
rights of the individuals affected.
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Notice of Designation of Aliens Subject
to Expedited Removal Proceedings
Pursuant to section 235(b)(1)(A)(iii) of
the Immigration and Nationality Act (8
U.S.C. 1225(b)(1)(A)(iii)) and 8 CFR
235.3(b)(1)(ii), I order as follows:
(1) With respect to the abovereferenced Designation of November 13,
2002, 67 FR 68924, I hereby rescind the
provision at numbered paragraph (5),
specifying that ‘‘[e]xpedited removal
proceedings will not be initiated against
Cuban citizens or nationals who arrive
by sea,’’ and other language of the
Designation referencing or relating to
that exception for Cuban citizens or
nationals.
(2) With respect to the abovereferenced Designation of August 11,
2004, 69 FR 48877, I hereby rescind the
provision at numbered paragraph (6),
specifying that ‘‘[t]he expedited removal
proceedings contemplated by this notice
will not be initiated against Cuban
citizens or nationals,’’ and other
language of the Designation referencing
or relating to that exception for Cuban
citizens or nationals.
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Signed: at Washington, DC this 11th of
January, 2017.
Jeh Charles Johnson,
Secretary of Homeland Security.
[FR Doc. 2017–00914 Filed 1–13–17; 8:45 am]
BILLING CODE P
DEPARTMENT OF HOMELAND
SECURITY
U.S. Citizenship and Immigration
Services
[CIS No. 2593–16; DHS Docket No. USCIS–
2015–USCIS–2013–0006]
RIN 1615–ZB62
Extension of the Designation of
Somalia for Temporary Protected
Status
U.S. Citizenship and
Immigration Services, Department of
Homeland Security.
ACTION: Notice.
AGENCY:
The Department of Homeland
Security (DHS) announces that the
Secretary of Homeland Security
(Secretary) is extending the designation
of Somalia for Temporary Protected
Status (TPS) for a period of 18 months,
effective March 18, 2017 through
September 17, 2018. This extension
allows eligible Somali nationals (and
aliens having no nationality who last
habitually resided in Somalia) to retain
TPS through September 17, 2018, so
long as they otherwise continue to meet
the eligibility requirements for TPS. The
Secretary has determined that an
extension is warranted because
conditions in Somalia supporting its
designation for TPS continue to be met.
Through this Notice, DHS also sets forth
procedures necessary for nationals of
Somalia (or aliens having no nationality
who last habitually resided in Somalia)
to re-register for TPS and to apply for
renewal of their Employment
Authorization Documents (EAD) with
U.S. Citizenship and Immigration
Services (USCIS).
DATES: The 18-month extension of the
TPS designation of Somalia is effective
as of March 18, 2017, and will remain
in effect through September 17, 2018.
The 60-day re-registration period runs
from January 17, 2017 through March
20, 2017. Note: It is important for reregistrants to timely re-register during
this 60-day period and not to wait until
their EADs expire.
FOR FURTHER INFORMATION CONTACT:
• For further information on TPS,
including guidance on the application
process and additional information on
eligibility, please visit the USCIS TPS
SUMMARY:
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4905
Web page at https://www.uscis.gov/tps.
You can find specific information about
the extension of Somalia’s designation
for TPS by selecting ‘‘Somalia’’ from the
menu on the left side of the TPS Web
page.
• You can also contact Guillermo
Roman-Riefkohl, TPS Program Manager,
Waivers and Temporary Services
Branch, Service Center Operations
Directorate, U.S. Citizenship and
Immigration Services, Department of
Homeland Security, 20 Massachusetts
Avenue NW., Washington, DC 20529–
2060; or by phone at 202–272–1533 (this
is not a toll-free number).
Note: The phone number provided here is
solely for questions regarding this TPS
Notice. It is not for individual case status
inquires.
• Applicants seeking information
about the status of their individual cases
can check Case Status Online, available
at the USCIS Web site at https://
www.uscis.gov, or call the USCIS
National Customer Service Center at
800–375–5283 (TTY 800–767–1833).
Service is available in English and
Spanish.
• Further information will also be
available at local USCIS offices upon
publication of this Notice.
SUPPLEMENTARY INFORMATION:
Table of Abbreviations
BIA—Board of Immigration Appeals
DHS—Department of Homeland Security
EAD—Employment Authorization Document
FNC—Final Nonconfirmation
Government—U.S. Government
IJ—Immigration Judge
INA—Immigration and Nationality Act
OSC—U.S. Department of Justice, Office of
Special Counsel for Immigration-Related
Unfair Employment Practices
SAVE—USCIS Systematic Alien Verification
for Entitlements Program
Secretary—Secretary of Homeland Security
TNC—Tentative Nonconfirmation
TPS—Temporary Protected Status
TTY—Text Telephone
USCIS—U.S. Citizenship and Immigration
Services
What is Temporary Protected Status
(TPS)?
• TPS is a temporary immigration
status granted to eligible nationals of a
country designated for TPS under the
Immigration and Nationality Act (INA),
or to eligible aliens without nationality
who last habitually resided in the
designated country.
• During the TPS designation period,
TPS beneficiaries are eligible to remain
in the United States, may not be
removed, and are authorized to work
and obtain EADs, so long as they
continue to meet the requirements of
TPS.
E:\FR\FM\17JAN1.SGM
17JAN1
Agencies
[Federal Register Volume 82, Number 10 (Tuesday, January 17, 2017)]
[Notices]
[Pages 4902-4905]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 2017-00914]
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DEPARTMENT OF HOMELAND SECURITY
Office of the Secretary
[DHS Docket No. DHS-2017-0004]
Eliminating Exception To Expedited Removal Authority for Cuban
Nationals Encountered in the United States or Arriving by Sea
AGENCY: Office of the Secretary, Department of Homeland Security.
ACTION: Notice.
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SUMMARY: This notice concerns the authority of the Department of
Homeland Security (DHS or the Department) to place certain designated
categories of aliens in expedited removal proceedings. On November 13,
2002, the former Immigration and Naturalization Service (INS) of the
Department of Justice issued a notice designating certain aliens who
arrive by sea, either by boat or other means, as eligible for placement
in expedited removal proceedings, with an exception for Cuban citizens
or nationals (hereinafter ``Cuban nationals''). On August 11, 2004, DHS
issued a notice designating certain aliens in the United States as
eligible for placement in expedited removal proceedings, also with an
exception for Cuban nationals. In light of recent changes in the
relationship between the United States and Cuba, the Department has
determined that the exceptions for Cuban nationals, contained in the
designations of November 13, 2002 and August 11, 2004, are no longer
warranted and are thus hereby eliminated. The rest of the November 13,
2002 and August 11, 2004 designations, including any implementing
policies, are unaffected by this notice and remain unchanged.
DATE: This notice is effective on January 13, 2017. Interested persons
are invited to submit written comments on this notice on or before
March 20, 2017.
ADDRESSES: You may submit comments, identified by DHS Docket Number
DHS-2017-0004, by any one of the following methods:
[[Page 4903]]
Federal e-Rulemaking Portal www.regulations.gov. Follow
the Web site instructions for submitting comments.
Mail or Hand Delivery/Courier: Please submit all written
comments (including and CD-ROM submissions) to Amanda Baran, Principal
Director for Immigration Policy, DHS, 245 Murray Lane SW., Mail Stop
0445, Washington, DC 20528.
Please submit your comments by only one method. Comments received
by means other than those listed above or received after the comment
period has closed will not be reviewed. All comments received will be
posted without change on https://www.regulations.gov. The https://www.regulations.gov Web site is the Federal e-rulemaking portal and
comments posted there are available and accessible to the public.
Commenters should not include personal information such as Social
Security Numbers, personal addresses, telephone numbers, and email
addresses in their comments as such information will become viewable by
the public on the https://www.regulations.gov Web site. It is the
commenter's responsibility to safeguard his or her information.
Comments submitted through https://www.regulations.gov will not include
the commenter's email address unless the commenter chooses to include
that information as part of his or her comment.
Postal delivery in Washington, DC, may be delayed due to security
concerns. Therefore, DHS encourages the public to submit comments
through the https://www.regulations.gov Web site.
Docket: For access to the docket to read background documents or
comments received, go to the Federal eRulemaking portal at https://www.regulations.gov. If you need assistance to review the comments,
please contact the person identified in the FOR FURTHER INFORMATION
CONTACT section below.
FOR FURTHER INFORMATION CONTACT: Amanda Baran, Principal Director for
Immigration Policy, 202-282-8805, Amanda.baran@hq.dhs.gov.
SUPPLEMENTARY INFORMATION: Section 302 of the Illegal Immigration
Reform and Immigrant Responsibility Act of 1996 (IIRIRA), Public Law
104-208, Div. C, 110 Stat. 3009-546, amended section 235(b) of the
Immigration and Nationality Act (``Act''), 8 U.S.C. 1225(b), to
authorize the Attorney General (now the Secretary of Homeland Security
as designated under the Homeland Security Act of 2002) to remove,
without a hearing before an immigration judge, aliens arriving in the
United States and certain other applicants for admission who are
inadmissible under sections 212(a)(6)(C) or 212(a)(7) of the Act, 8
U.S.C. 1182(a)(6)(C) and 1182(a)(7), for lack of valid documents
necessary for admission or entry or for procuring or seeking to procure
a visa, other immigration-related documentation, admission to the
United States, or other immigration benefit by fraud or willful
misrepresentation of a material fact.
Expedited removal proceedings under section 235(b) of the Act, 8
U.S.C. 1225(b), may be applied to two categories of aliens. First,
expedited removal proceedings may be used for aliens who are ``arriving
in the United States.'' Section 235(b)(1)(A)(i) of the Act, 8 U.S.C.
1225(b)(1)(A)(i). Second, the Secretary, in his or her sole and
unreviewable discretion, may designate certain other aliens to whom the
expedited removal provisions may be applied. Section 235(b)(1)(A)(iii)
of the Act, 8 U.S.C. 1225(b)(1)(A)(iii); see 8 CFR 235.3(b)(1)(ii).
Specifically, with limited exception, the Act authorizes the Secretary
to apply (by designation) expedited removal proceedings to all or any
subset of aliens who (1) have not been admitted or paroled following
inspection by an immigration officer at a designated port-of-entry, and
(2) have not established to the satisfaction of the immigration officer
that they have been physically present in the United States
continuously for the two-year period immediately prior to the date of
determination of inadmissibility. Section 235(b)(1)(A)(iii)(I)-(II), 8
U.S.C. 1225(b)(1)(A)(iii)(I)-(II). The Secretary may modify such
designations at any time. Id.
On November 13, 2002, the former INS issued a Federal Register
notice announcing that it was exercising its authority under section
235(b)(1)(A)(iii) of the Act, 8 U.S.C. 1225(b)(1)(A)(iii), to designate
additional aliens who may be placed in expedited removal proceedings.
67 FR 68924. Specifically, that notice designated the following class
of aliens who may be placed in expedited removal proceedings: ``all
aliens who arrive in the United States by sea, either by boat or other
means, who are not admitted or paroled, and who have not been
physically present in the United States continuously for the two-year
period prior to a determination of inadmissibility.'' Id. The INS noted
at the time that ``[p]lacing these individuals in expedited removal
proceedings and maintaining detention for the duration of all
immigration proceedings, with limited exceptions, will ensure prompt
immigration determinations and ensure removal from the country of those
not granted relief in those cases, while at the same time protecting
the rights of the individuals affected.'' Id. The INS also stated that
``exercising its authority to detain this class of aliens . . . will
assist in deterring surges in illegal migration by sea, including
potential mass migration, and preventing loss of life.'' Id. The INS
further noted that preventing illegal migration by sea also protects
national security, as ``[a] surge in illegal migration by sea threatens
[that] security by diverting valuable United States Coast Guard and
other resources from counter-terrorism and homeland security
responsibilities.'' Id.
The November 13, 2002 notice, however, contained an exception for
Cuban nationals who are otherwise described in the designated class,
stating that expedited removal proceedings would not be initiated
against such Cuban nationals who arrive by sea. Id. The INS based this
exception on ``longstanding U.S. policy to treat Cubans differently
from other aliens,'' citing the Cuban Adjustment Act, Public Law 89-732
(1966) (8 U.S.C. 1255 note), as an example of such treatment. Id. The
notice also cited section 235(b)(1)(F) of the Act, 8 U.S.C.
1225(b)(1)(F), which at the time statutorily exempted Cuban nationals
who arrived by aircraft at a U.S. port of entry from being placed into
expedited removal proceedings because of the lack of diplomatic
relations between the United States and Cuba. That section expressly
provides that expedited removal ``shall not apply to an alien who is a
native or citizen of a country in the Western Hemisphere with whose
government the United States does not have full diplomatic relations
and who arrives by aircraft at a port of entry.'' Section 235(b)(1)(F)
of the Act, 8 U.S.C. 1225(b)(1)(F).
On August 11, 2004, DHS issued a similar Federal Register notice
announcing that it was exercising its authority under section
235(b)(1)(A)(iii), 8 U.S.C. 1225(b)(1)(A)(iii), to designate an
additional class of aliens who may be placed in expedited removal
proceedings. 69 FR 48877. That notice authorized the Department to
place in expedited removal proceedings any or all members of the
following class of aliens: ``Aliens determined to be inadmissible under
sections 212(a)(6)(C) or (7) of the Immigration and Nationality Act who
are present in the U.S. without having been admitted or paroled
following inspection by an immigration officer at a designated port of
entry, who are encountered by an immigration officer within 100 air
miles
[[Page 4904]]
of the U.S. international land border, and who have not established to
the satisfaction of an immigration officer that they have been
physically present in the U.S. continuously for the fourteen-day (14-
day) period immediately prior to the date of encounter.'' Id. DHS noted
at the time that ``exercising its statutory authority to place these
individuals in expedited removal proceedings will enhance national
security and public safety by facilitating prompt immigration
determinations, enabling DHS to deal more effectively with the large
volume of persons seeking illegal entry, and ensure removal from the
country of those not granted relief, while at the same time protecting
the rights of the individuals affected.'' Id.
Like the November 13, 2002 notice, the August 11, 2004 notice
contained an exception for Cuban nationals who are otherwise described
in the designated class and stated that expedited removal proceedings
would not be initiated against such nationals encountered in the United
States. Id. The notice similarly based this exception on that fact that
``removals to Cuba [could not] presently be assured and for other U.S.
policy reasons,'' id., citing section 235(b)(1)(F) of the Act, 8 U.S.C.
1225(b)(1)(F), as well.
Since those notices were issued, significant changes in the
relationship between the United States and Cuba have occurred. In
December 2014, President Obama announced a historic opening between the
United States and Cuba, as well as an approach for reestablishing
diplomatic relations and adjusting regulations to facilitate greater
travel, commerce, people-to-people ties, and the free flow of
information to, from, and within Cuba. On July 20, 2015, the United
States and Cuba formally reestablished full diplomatic relations and
opened embassies in each other's countries. In the time following the
reestablishment of full diplomatic relations, the United States and
Cuba have taken concrete steps towards enhancing security, building
bridges between our peoples, and promoting economic prosperity for
citizens of both countries. And recent migration discussions have
yielded important changes that will dramatically affect travel and
migration between our two countries. Among other things, Cuba has
agreed to accept and facilitate the repatriation of its nationals who
are ordered removed from the United States. This arrangement and other
changes remain the focus of ongoing diplomatic discussions between the
two countries.
DHS also has recently seen a significant increase in attempts by
Cuban nationals to illegally enter the United States. Many of those
Cuban nationals have taken a dangerous journey through Central America
and Mexico; others have taken to the high seas in the dangerous attempt
to cross the Straits of Florida. DHS believes this increase in
attempted migration has been driven in part by the perception that
there is a limited window before the United States will eliminate
favorable immigration policies for Cuban nationals.
The application of the expedited removal authorities to Cuban
nationals must reflect these new realities. First, the Department notes
that the statutory provision categorically barring the use of expedited
removal for certain aliens who arrive by aircraft at a U.S. port of
entry no longer applies to Cuban nationals, as the United States and
Cuba have reestablished full diplomatic relations. See section
235(b)(1)(F) of the Act, 8 U.S.C. 1225(b)(1)(F). In fact, DHS and DOJ
are promulgating rules in this issue of the Federal Register, amending
8 CFR 235.3(b)(1)(i) and 1235.3(b)(1)(i) to strike the regulatory
exception for Cuban nationals arriving by aircraft at a U.S. port of
entry. Second, the improved relationship between the United States and
Cuba, along with Cuba's agreement to accept the repatriation of its
nationals, has eroded certain U.S. policy justifications for the
exception. Finally, a categorical exception severely impairs the
Government's ability to remove unauthorized aliens encountered within
the United States. For these reasons, DHS has determined, in
consultation with the Department of State, that a categorical exception
from expedited removal for Cuban nationals is no longer in the
interests of the United States.
Accordingly, this notice eliminates the categorical exceptions for
Cuban nationals, with respect to both the November 13, 2002 and August
11, 2004 notices, on a prospective basis, beginning on January 13,
2017, see 8 CFR 235.3(b)(1)(ii) (designation may be effective as early
as the date of issuance). As a result, Cuban nationals encountered on
or after January 13, 2017 are included in the classes of aliens subject
to expedited removal as designated in the November 13, 2002 and August
11, 2004 notices. DHS is not changing any other aspects of those
designations and, apart from the modification described above, will
continue exercising its expedited removal authority as indicated in the
November 13, 2002 and August 11, 2004 notices.
As it did for the November 13, 2002 and August 11, 2004 notices,
and consistent with implementing regulations at 8 CFR 235.3(b)(1)(ii),
the Department has determined that good cause exists to exempt this
notice from the notice-and-comment and 30-day delayed effective date
requirements under the Administrative Procedure Act (APA). See 5 U.S.C.
553(b)(3)(B) and (d)(3). Delaying the implementation of this notice to
allow public notice and comment would be impracticable and contrary to
the public interest. Congress explicitly authorized the Secretary to
designate categories of aliens to whom expedited removal proceedings
may be applied, and made clear that ``[s]uch designation shall be in
the sole and unreviewable discretion of the Secretary and may be
modified at any time.'' Section 235(b)(1)(A)(iii)(I) of the Act, 8
U.S.C. 1225(b)(1)(A)(iii)(I).
Moreover, as with the August 11, 2004 notice, the designation in
this notice is necessary to remove quickly from the United States
aliens who are encountered shortly after illegally entering across U.S.
land borders. The ability to detain such aliens while admissibility and
identity are determined and protection claims are adjudicated, as well
as to quickly remove those without protection claims or claims to
lawful status, is a necessity for national security and public safety.
DHS has determined that pre-promulgation notice and comment would
undermine these interests, while endangering human life and having a
potential destabilizing effect in the region. Among other things, such
opportunity for notice and comment could result in a surge in migration
of Cuban nationals seeking to travel to and enter the United States
prior to the effectuation of the changes announced in this notice. Such
a surge would threaten national security and public safety by diverting
valuable Government resources from counterterrorism and homeland
security responsibilities. See Matter of D-J-, I. & N. Dec. 572, 579
(A.G. 2003). A surge could also have a destabilizing effect on the
region, thus weakening the security of the United States and
threatening its international relations. Additionally, a surge in
migration over land or sea could result in significant loss of human
life. For the foregoing reasons, the Department has determined that
public notice and comment prior to promulgation of this notice would be
impracticable and contrary to the public interest.
In addition, the change implemented by this notice is part of a
major foreign policy initiative announced by the President, and is
central to ongoing
[[Page 4905]]
diplomatic discussions between the United States and Cuba with respect
to travel and migration between the two countries. DHS, in consultation
with the Department of State, has determined that eliminating the
exception from expedited removal proceedings for Cuban nationals
involves a foreign affairs function of the United States, 5 U.S.C.
553(a)(1), and that this notice is exempt from APA procedural
requirements on that basis.
Finally, and for the same reasons described above, DHS finds that
delay caused by publication would adversely affect the interests of the
United States and the effective enforcement of the immigration laws,
and therefore invokes 8 CFR 235.3(b)(1)(ii) to make this designation
effective immediately upon placement on public inspection.
Although advance notice and comment procedures are not in the
interests of the United States with respect to this notice, DHS is
interested in receiving comments from the public on the elimination of
the categorical exception for Cuban nationals. DHS believes that by
maintaining a dialogue with interested parties, DHS may be better
positioned to ensure that the program is even more effective in
combating and deterring illegal entry, while at the same time
protecting the rights of the individuals affected.
Notice of Designation of Aliens Subject to Expedited Removal
Proceedings
Pursuant to section 235(b)(1)(A)(iii) of the Immigration and
Nationality Act (8 U.S.C. 1225(b)(1)(A)(iii)) and 8 CFR
235.3(b)(1)(ii), I order as follows:
(1) With respect to the above-referenced Designation of November
13, 2002, 67 FR 68924, I hereby rescind the provision at numbered
paragraph (5), specifying that ``[e]xpedited removal proceedings will
not be initiated against Cuban citizens or nationals who arrive by
sea,'' and other language of the Designation referencing or relating to
that exception for Cuban citizens or nationals.
(2) With respect to the above-referenced Designation of August 11,
2004, 69 FR 48877, I hereby rescind the provision at numbered paragraph
(6), specifying that ``[t]he expedited removal proceedings contemplated
by this notice will not be initiated against Cuban citizens or
nationals,'' and other language of the Designation referencing or
relating to that exception for Cuban citizens or nationals.
Signed: at Washington, DC this 11th of January, 2017.
Jeh Charles Johnson,
Secretary of Homeland Security.
[FR Doc. 2017-00914 Filed 1-13-17; 8:45 am]
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