Matter of Lee

Application for Permission to Reapply

重新申请入境许可申请

This matter is before the Commissioner on certification as provided by 8 C.F.R. 103.4, for review of the Regional Commissioner's decision to dismiss the appeal from the District Director's order denying an application for permission to reapply for admission into the United States after deportation. The applicant is a 39-year-old native and citizen of China residing in Hong Kong- He first came to Service attention as a crewman on board the M/V Eastern Star applying for permission to land temporarily in pursuit of his calling on June 1, 1965. His application was refused and he was ordered detained on board as a mala fide crewman. On a subsequent arrival on the same vessel on November 9, 1965, at Port Angeles, Washington, he was granted permission to land temporarily as a crewman. On November 18, 1965, the applicant, accompanied by two other crewmembers, left the vessel at Port Angeles, Washington,

本事项因依据8 C.F.R. 103.4进行的认证而提交至专员，以审查区域专员驳回上诉的决定，该上诉针对的是地区主任拒绝批准在驱逐出境后重新申请入境美国许可的申请的命令。 申请人是一名39岁的中国出生公民，居住在香港。他首次引起移民局注意是在1965年6月1日，作为M/V Eastern Star号船上的船员申请临时登陆以从事其职业。其申请被拒绝，并被命令作为恶意船员在船上拘留。1965年11月9日，他乘坐同一船只再次抵达华盛顿州安吉利斯港时，获准作为船员临时登陆。1965年11月18日，申请人在另外两名船员陪同下，在华盛顿州安吉利斯港离开船只，

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and traveled by bus to Seattle, Washington, despite a standing order issued by the Captain of the M/V Eastern Star that shore leave for all crewmembers was restricted to the immediate area of Port Angeles. The applicant and his two companions were taken into custody at the bus station in Seattle by immigration officers. They were charged with attempting to desert the vessel on which they arrived, permission to land was revoked, and they were ordered deported pursuant to section 252(b) of the Immigration and Nationality Act of 1952, as amended, 8 U.S.C. 1282(b). The applicant was returned to his vessel at Port Angeles on November 20, 1965, and ordered detained on board in custody of the Master. His deportation from the United States was effected on November 24, 1965, upon the vessel's departure from the United States. The applicant was refused landing privileges as a crewman on five subsequent occasions of arrival on foreign-registered vessels in the United States. On the fifth occasion of arrival (July 3, 1969), he deserted his vessel, the M/V Deganya, at Newark, New Jersey. Efforts by the Service to locate the applicant were unsuccess- ful. On July 21, 1975, a sixth-preference petition was submitted by the China Garden Restaurant, Incorporated, Raynham, Massachusetts, on the applicant's behalf. This petition was approved on May 21, 1976. At the request of this Service, the applicant surrendered himself to this Service at Boston, Massachusetts, and was granted the privilege of departing voluntarily from the United States. The record contains verification of departure on August 21, 1976, from Anchorage, Alaska, to Tokyo, Japan. The applicant made application for an immigrant visa at the United States Consulate in Hong Kong and was informed on October 22, 1976, that he needed permission to reapply for admission into the United States after deportation. The instant application was then filed on October 29, 1976, at Boston and subsequently transferred to the Seattle office, which had jurisdiction in the matter pursuant to 8 C.F.R. 212.2(c). The District Director denied the application as a matter of discre- tion and cited Matter of Tin, 14 I&N Dec. 371 (R.C. 1973), and Matter of Chim, 14 I&N Dec. 357 (R.C. 1973), as justification for his action. The Regional Commissioner affirmed the District Director's decision and dismissed the appeal. Section 212(a)(17) of the Immigration and Nationality Act of 1952, as amended, 8 U.S.C. 1182(a)(17), has its roots in section 3 of the Act of 1917. Section 3 made prostitutes and other immoral classes who had been previously debarred or deported from the United States exclud- able unless they had received permission from the Secretary of Labor to reapply for admission. The Act of March 2, 1929, extended this provision, making it a felony to reenter the United States after having

并乘坐巴士前往华盛顿州西雅图，尽管M/V Eastern Star号船长已发布常设命令，规定所有船员的岸上休假仅限于安吉利斯港附近区域。申请人和他的两名同伴在西雅图巴士站被移民官员拘留。他们被指控试图逃离其抵达时所乘船只，登陆许可被撤销，并依据经修订的1952年《移民与国籍法》第252(b)条、8 U.S.C. 1282(b)被命令驱逐出境。申请人于1965年11月20日在安吉利斯港被送回其船只，并被命令在船长看管下在船上拘留。1965年11月24日，该船离开美国时，其从美国的驱逐出境生效。申请人在随后五次乘坐外国注册船只抵达美国时，均被拒绝作为船员登陆的特权。在第五次抵达时（1969年7月3日），他在新泽西州纽瓦克逃离其船只M/V Deganya号。移民局寻找申请人的努力未获成功。1975年7月21日，马萨诸塞州雷纳姆的中国花园餐厅公司代表申请人提交了第六优先类申请。该申请于1976年5月21日获批。应移民局请求，申请人在马萨诸塞州波士顿向移民局自首，并获得自愿离开美国的特权。记录中包含1976年8月21日从阿拉斯加州安克雷奇前往日本东京的离境核实。 申请人在美国驻香港领事馆申请移民签证，并于1976年10月22日被告知，其需要获得在驱逐出境后重新申请入境美国的许可。随后，本申请于1976年10月29日在波士顿提交，之后转至西雅图办公室，该办公室依据8 C.F.R. 212.2(c)对本事项具有管辖权。 地区主任作为自由裁量事项拒绝了该申请，并援引Matter of Tin，14 I&N Dec. 371（区域专员1973年）和Matter of Chim，14 I&N Dec. 357（区域专员1973年）作为其行动的理由。区域专员维持了地区主任的决定并驳回了上诉。 经修订的1952年《移民与国籍法》第212(a)(17)条、8 U.S.C. 1182(a)(17)源于1917年法案第3条。第3条规定，先前被禁止入境或被驱逐出境的妓女及其他不道德类别的人不可入境，除非他们已获得劳工部长允许重新申请入境。1929年3月2日法案扩展了该规定，将在被驱逐出境后重新进入美国定为重罪，除非部长已批准在驱逐出境后重新申请入境的许可。

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been deported unless the Secretary had granted permission to reapply for admission after deportation. The Immigration and Nationality Act of 1952, as amended, in- corporated the same language but made a distinction between those previously excluded (section 212(a)(16) of the Act) and those who had been deported (section 212(a)(17) of the Act). Those previously ex- cluded require permission of the Attorney General to reapply for admission if that application was to be made within 1 year of the date of exclusion and deportation. Those previously deported require the permission of the Attorney General to reapply for adthission at any time after deportation. The intent of Congress in enacting section 212(a)(16) and (17) can best be found in the conclusions and recommendations of the Senate Committee on the Judiciary in their report (S. Rep. No. 1515, 81st Cong., 2nd Sess. (1950)) concerning the effectiveness and necessity of retaining the various laws affecting immigration. A study was con- ducted pursuant to S. Res. 137, 80th Cong., 1st Sess., for the purpose of bringing all laws pertaining to imr -nigration and nationality under one composite heading. (The Immigration and Nationality Act of 1952 was the fruit of these labors.) The Committee report issuing from this study addressed the subject of previously deported or excluded aliens and made the following conclusions and recommendations. Speaking of section 3 of the 1917 Act, the Committee stated: The subcominittee finds that the law as it is now written is adequate to prevent the abuse of the exclusion and deportation laws by aliens who attempt to reapply for admission to the United States soon after their exclusion or deportation, as well as to allow reconsideration when the alien is able to overcome the handicaps which brought about the original exclusion and deportation. Page 365. (Underscoring supplied.) The second clause of these conclusions and recommendations di- rectly concerns the instant application. The import of these words is to give a previously deported alien a second chance and connotes a remedial relief rather than a punitive provision of statute. In this regard, I find the several decisions affecting permission to reapply after deportation lacking this attitude. Matter of H—R—, 5 I&N Dec. 769 (C.O. 1954), and Matter of Chirt, supra, convey a punitive attitude and attach conditions beyond anything I believe Congress intended in granting the Attorney General authority to allow previously deported or excluded aliens to reapply for entry into the United States. The discussion of the issues raised in the instant case will be made with the foregoing in mind. 1. Moral character of the applicant: In a recent case before me on certification, the Regional Commissioner also held that a record of immigration violations denoted poor moral character and cited this finding as one of the adverse factors considered. In that case, I ruled that contention was

经修订的1952年《移民与国籍法》纳入了相同措辞，但区分了先前被排除入境者（该法第212(a)(16)条）和被驱逐出境者（该法第212(a)(17)条）。先前被排除入境者，如果该申请是在排除入境和驱逐出境之日起1年内提出，则需要司法部长许可才能重新申请入境。先前被驱逐出境者，在驱逐出境后任何时候重新申请入境均需司法部长许可。 国会在制定第212(a)(16)和(17)条时的意图，最好见于参议院司法委员会在其关于保留各项影响移民的法律的有效性和必要性的报告（S. Rep. No. 1515, 81st Cong., 2nd Sess. (1950)）中的结论和建议。依据S. Res. 137, 80th Cong., 1st Sess.进行了一项研究，目的是将所有与移民和国籍有关的法律归入一个综合标题之下。（1952年《移民与国籍法》就是这些工作的成果。）该研究产生的委员会报告讨论了先前被驱逐出境或被排除入境的外国人这一主题，并作出以下结论和建议。 在谈到1917年法案第3条时，委员会指出： 小组委员会认为，现行法律足以防止外国人在被排除入境或驱逐出境后不久试图重新申请入境美国时滥用排除入境和驱逐出境法律，同时也允许在该外国人能够克服导致最初排除入境和驱逐出境的障碍时重新考虑。第365页。（下划线为后加。） 这些结论和建议的第二句直接涉及本申请。这些话的含义是给先前被驱逐出境的外国人第二次机会，并暗示一种补救性救济，而非惩罚性法规条款。在这方面，我认为涉及驱逐出境后重新申请许可的若干决定缺乏这种态度。Matter of H—R—，5 I&N Dec. 769（首席法律顾问1954年）和Matter of Chim，同上，传达了一种惩罚性态度，并附加了我认为国会在授予司法部长允许先前被驱逐出境或被排除入境的外国人重新申请进入美国权力时所意图之外的条件。对本案所提出问题的讨论将以上述内容为背景进行。 1. 申请人的道德品格： 在最近提交我认证的一起案件中，区域专员也认定移民违规记录表明道德品格不良，并将该认定列为考虑的不利因素之一。在该案中，我裁定该主张

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2. Recency of the deportation: The recency of the deportation is mentioned as a factor to be considered in Matter of Tin, supra. However, there is but a passing reference to this factor. ("As a further example, an alien who was deported many years ago solely for a minor immigration violation and who has a bona fide reason for wanting to immigrate to the United States, may be granted permission to reapply ....") I believe that the recency of the deportation can only be considered when there is a finding of poor moral character based on moral turpitude in the conduct and attitude of a person which evinces a callous conscience. In such circumstances, there must be a measurable reformation of character over a period of time in order to properly assess an applicant's ability to integrate into our society. In all other instances when the cause of deportation has been removed and the person now appears eligible for issuance of a visa, the time factor should not be considered. 3. Need for the applicant's services in the United States: The Regional Commissioner considered the need for the services of the applicant in the United States and dismissed this as a favorable factor. However, I find there is merit in counsel's contention that where the applicant will provide services to the public in a job category where sufficient workers in the United States are not available, this is a favorable factor in behalf of the applicant 4. Applicant's contention that he did not know he was deported: This contention will be dismissed without discussion. The record clearly shows he was deported pursuant to section 252(b) of the Act and does need permission of the Attorney General to apply for admission to the United States. 5. Length of time applicant had been in the United States: I can only relate a positive factor of residence in the United States where that residence is pursuant to a legal admission or adjustment of status as a permanent resident. If we were to reward a person for remaining in the United States in violation of law, the structure of all laws pertaining to immigration would be seriously threatened. Therefore, I will dismiss counsel's contention that tliis should be considered a favorable factor. In item #1, the Regional Commissioner discussed the record of immigration violations in the context of equating these violations with a finding of a lack of good moral character. While I dismissed the finding of poor moral character, I will not lightly dismiss a serious record of immigration violations. An evinced callous attitude toward violating the immigration laws without a hint of reformation of character should be considered as a heavily weighted adverse factor. In the instant case, I do find that hint of reformation of character in the attitude of the applicant in surrendering himself to the Service and departing the United States voluntarily as requested. While it may be argued that his motivation in doing so was predicated on self-interest,

2. 驱逐出境的近期性： 在Matter of Tin, supra中，驱逐出境的近期性被列为应考虑的因素之一。然而，该因素仅被顺带提及。（“作为进一步的例子，一个多年前仅因轻微移民违规而被驱逐出境的外国人，如果有正当理由希望移民美国，可以获准重新申请……”） 我认为，只有在基于道德败坏认定一个人品行不良、其行为和态度显示出麻木不仁的良心时，才能考虑驱逐出境的近期性。在此类情况下，必须经过一段时间可衡量的品格改造，才能适当评估申请人融入我们社会的能力。在所有其他情况下，当驱逐出境的原因已消除且该人现在似乎有资格获得签证签发时，时间因素不应予以考虑。 3. 对美国境内申请人服务的需求： 区域专员考虑了美国境内对申请人服务的需求，并将其作为有利因素予以驳回。然而，我认为律师的论点有道理：如果申请人将在美国工人不足的职位类别中向公众提供服务，这对申请人而言是一个有利因素。 4. 申请人关于其不知道自己被驱逐出境的主张： 该主张不予讨论即予驳回。记录清楚显示，他是依据该法第252(b)条被驱逐出境的，确实需要司法部长许可才能申请入境美国。 5. 申请人在美国停留的时间长度： 我只能将在美国的居住视为积极因素，前提是该居住是依据合法入境或作为永久居民调整身份。 如果我们奖励一个人违反法律留在美国，所有与移民有关的法律结构都将受到严重威胁。因此，我将驳回律师关于此应被视为有利因素的主张。 在第1项中，区域专员在将移民违规记录等同于认定缺乏良好道德品格的语境下讨论了该记录。虽然我驳回了品行不良的认定，但我不会轻率地驳回严重的移民违规记录。对违反移民法表现出麻木不仁的态度且毫无品格改造迹象的，应被视为权重很大的不利因素。在本案中，我确实在申请人向移民局自首并按要求自愿离开美国的态度中发现了品格改造的迹象。虽然可以争辩说，他这样做的动机是基于自身利益，

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it is only natural that positive character reformation is more apt to take place when a benefit seems likely to accrue to a person. In applying the principles set forth in this discussion and weighing all factors present, I find that the applicant should be granted permis sion to reapply for admission into the United States after deportation and will set aside the order of the District Director denying the application and the Regional Commissioner's dismissal of the appeal. Matter of Chin, supra, and Matter of Tin, supra, are modified insofar as the weight given to adverse factors is inconsistent with the weight accorded the adverse factors in this decision. ORDER: The District Director's decision denying the application for permission to reapply for admission after deportation and the Regional Commissioner's dismissal of appeal to that decision is hereby set aside, and the application is granted.

当一个人似乎可能获得利益时，积极的品格改造更有可能发生，这是很自然的。 在适用本讨论中提出的原则并权衡所有现有因素后，我认为应准许申请人重新申请在驱逐出境后入境美国，并将撤销地区主任驳回申请的命令以及区域专员驳回上诉的决定。Matter of Chin, supra和Matter of Tin, supra予以修改，因为其中赋予不利因素的权重与本决定中赋予不利因素的权重不一致。 命令：地区主任驳回驱逐出境后重新申请入境许可的决定以及区域专员驳回对该决定上诉的决定，特此撤销，申请予以批准。