April 15, 2015 UPDATE ON NEW AND

NOVEL PSGS

[Nationality] who reported a serious gang-

related (or cartel-related) crime to law enforcement

[Nationality] female heads of household

TWO RECENT PSG FORMULATIONS

Is there a cognizable PSG? Group members share immutable/fundamental characteristic Group is defined with particularity Group is socially distinct within society in question Society-by society, case-by-case analysis Matter of M-E-V-G-, 26 I&N Dec. 227 (BIA 2014)

Is applicant a member of PSG? Actual or imputed

Is harm on account of membership in the PSG? Was membership in PSG at least one central reason applicant

was/would be targeted?

REVIEW: PSG ANALYSIS

Possession of protected characteristic does not end nexus analysis

Harm must be on account of protected characteristic

You must elicit sufficient testimony to determine “on account of”

What did they say? How would they know…? Has this happened to anyone like you (similarly

situated)? Why was that person harmed? How do you know that?

ON ACCOUNT OF: DO THIS!!!

Evolving

QA guidance currently in development and forthcoming

HQ wants to hear your questions and concerns

BEFORE WE MOVE ON…

All examples are from CF or RF cases.

Keep in mind the screening purpose of these programs and their respective standards.

BEFORE WE MOVE ON…

REPORTING GANG / CARTEL CRIMES

Unsettled area of law and policy APSO: Novel issue may merit positive determination In determining whether the alien has a credible fear of

persecution…or a credible fear of torture, the asylum officer shall consider whether the alien’s case presents novel or unique issues that merit consideration in a full hearing before an immigration judge. 8 C.F.R.§ 208.30(e)(4)

Affirmative: HQ ASY still evaluating. If you think you

have a grant on this basis, send for QA review.

REPORTING GANG/CARTEL CRIMES * * CAVEAT * *

[Nationality] who reported a serious gang-

related crime to law enforcement [Nationality] who reported a serious cartel-

related crime to law enforcement

REPORTING GANG/CARTEL CRIMES

Guatemalans who reported a serious gang-related crime to law enforcement

1 . PSG is cognizable:

Immutability: Past experience of having reported a serious gang-related crime to law enforcement is immutable.

Particularity: Specific assistance to law enforcement: reporting a crime Specific type of crime: serious, gang-related

Social distinction: Applicant’s neighbors knew she reported the crime, claimed she put the community in danger, and wanted her to leave

Remember: threshold screening / significant possibi l i ty standard

REPORTING GANG/CARTEL CRIMES CF EXAMPLE

Guatemalans who reported a serious gang-related crime to law enforcement

2. Applicant is a member:

Applicant reported burglary of home by gang to the police.

3. Harm was on account of membership in PSG:

Gang threatened to kill her after she reported burglary Gang known to have kidnapped/murdered others who

reported them to police Remember: threshold screening / significant possibi l i ty standard

REPORTING GANG/CARTEL CRIMES CF EXAMPLE

Salvadorans who observed and reported a violent gang-related crime to law enforcement

1 . PSG is cognizable:

Immutabil ity: Past experience of having reported a violent gang-related crime to law enforcement is immutable.

Particularity: Specific assistance to law enforcement: observing and reporting a crime Specific type of crime: violent, gang-related

Social distinction: COI (citations posted at end of presentation) Government agency and police dedicated to protecting witnesses and

others involved in crime investigations Media reports of victims and witnessed being killed, fear of retribution,

public perception that reporting perpetrators will lead to death

Remember: threshold screening / reasonable possibi l i ty s tandard

REPORTING GANG/CARTEL CRIMES RF EXAMPLE

Salvadorans who observed and reported a violent gang-related crime to law enforcement

2. Applicant is perceived to be a member:

Applicant witnessed murder by gang member. Applicant did not report the murder, but a dif ferent gang member was prosecuted. Murderer later asked applicant why he reported him.

3. Harm was on account of imputed membership in PSG:

Gang kidnapped and beat applicant, asking why he reported them to the police.

Remember: threshold screening / reasonable possibi l i ty standard

REPORTING GANG/CARTEL CRIMES RF EXAMPLE

Assistance to law enforcement in US

Could be cognizable PSG Must show social distinction within home country/society

Remember to elicit/analyze for remaining Mogharrabi prongs Don’t forget awareness and inclination Compare to claims based on political activism outside home

country, or other refugee sur place claims

REPORTING GANG/CARTEL CRIMES: OTHER ISSUES

Criminal informants

PSG cannot be defined by terrorist, criminal or persecutory activity, past or present

Where cooperation is part of plea deal, applicant’s status is tied to criminal conviction

Where person serves as witness in exchange for compensation, person “takes calculated risk and is not in a position to claim refugee status should such risks materialize.” “Compensation” would include reduced sentence

Guidance on Matter of C-A-, Memo from Lynden D. Melmed, Chief Counsel, USCIS to Lori Scialabba, Associate Director, RAIO (January 12, 2007)

REPORTING GANG/CARTEL CRIMES: OTHER ISSUES

FEMALE HEADS OF HOUSEHOLDS

[Nationality] female heads of household

Note: Marital status is not an element

FEMALE HEADS OF HOUSEHOLD

Salvadoran female heads of household

1 . PSG is cognizable:

Immutabil ity/ Fundamentality: Gender and nationality are immutable. Living without a male to head the household is fundamental: not

something applicant should be required to change

Particularity: Clearly delineates members of group

Social distinction: COI (citations posted at end of presentation) Female HOH face particular social and economic hardships, including

increased vulnerability to crime “Machista” cultural pattern where men father children, abandon family

Remember: threshold screening / s ignif icant possibi l i ty s tandard

FEMALE HEADS OF HOUSEHOLD CF EXAMPLE

Salvadoran female heads of household

2. Applicant is a member:

Applicant’s husband left family to have more children with another woman. Applicant lived alone with daughters.

3. Harm was on account of membership in PSG:

Gang sent threatening notes mentioning that she lived by herself

Gang specifically referenced fact that husband left, and no man living in household, while sexually assaulting applicant

Remember: threshold screening / significant possibi l i ty standard

FEMALE HEADS OF HOUSEHOLD CF EXAMPLE (A)

Salvadoran female heads of household

2. Applicant is a member:

Applicant’s husband moved to US. Applicant lived alone with son. Her father and brother lived in another department.

3. Harm was on account of membership in PSG:

Gang specifically stated to her that they knew she was single mother, l iving alone with son, and therefore had to cooperate with demands.

Remember: threshold screening / significant possibi l i ty standard

FEMALE HEADS OF HOUSEHOLD CF EXAMPLE (B)

Guatemalan female heads of household

Harm was not on account of membership in PSG:

Applicant threatened by gang members at the river where she and other single mothers did their washing.

Married women also washed there, but accompanied by husbands. Applicant did not know whether married women were threatened.

Gang members spent most of their time by same river.

Gang did not say anything about applicant or other women being single mothers.

Applicant said she did not know why she was threatened.

FEMALE HEADS OF HOUSEHOLD: REMEMBER “ON ACCOUNT OF”

Honduran female heads of household

Harm was not on account of membership in PSG:

Applicant lived alone with children while husband lived and worked in US.

Gang threatened, extorted her.

Applicant said gang believed she had money because they owned their home, and husband worked in US.

FEMALE HEADS OF HOUSEHOLD: REMEMBER “ON ACCOUNT OF”

REMINDERS

You must elicit sufficient testimony to determine “on account of”

Unsettled area of law and policy APSO: Novel issue may merit positive determination

Affirmative: HQ ASY still evaluating. If you think you have a grant on this basis, send for QA review.

DON’T FORGET

Please send any questions, comments, or concerns to Training Officers.

We will collect and forward for HQ to consider and

address in forthcoming guidance.

QUESTIONS OR CONCERNS?

E l S a l v a d o r h a s e s t a b l i s h e d “ t h e V i c t i m a n d W i t n e s s P r o t e c t i o n A r e a ( Á r e a d e P r o t e c c i ó n d e V í c t i m a s y T e s t i g o s ) , [ a n ] a g e n c y r e s p o n s i b l e f o r ‘ p r o v i d i n g p r o t e c t i o n m e a s u r e s , a n d a s s i s t a n c e t o v i c t i m s , w i t n e s s e s a n d o t h e r p e r s o n s i n v o l v e d i n j u d i c i a l p r o c e s s e s o r c r i m e i n v e s t i g a t i o n s . ’ ” ( E m p h a s i s a d d e d ) . I m m i g r a t i o n a n d R e f u g e e B o a r d o f C a n a d a , E l S a l v a d o r : C r i m e a n d s t a t e e f f o r t s t o c o m b a t c r i m e ; s t a t e p r o t e c t i o n p r o g r a ms f o r v i c t i m s a n d w i t n e s s e s ; r e q u i r e me n t s t o a c c e s s p r o g r a m s ; s t a t i s t i c s o n g r a n t e d a n d r e f u s e d a p p l i c a t i o n s f o r p r o t e c t i o n ; d u r a t i o n a n d e f f e c t i v e n e s s o f t h e s e p r o g r a m s , J u n e 2 5 , 2 0 1 2 , h t t p : / / w w w . r e f w o r l d . o r g / do c i d / 5 0 3 5 f 9 6 0 2 . h t m l .

T h e S a l v a d o r a n N a t i o n a l P o l i c e h a s a l s o d e d i c a t e d o v e r 3 6 0 p e r s o n n e l t o w i t n e s s p r o t e c t i o n - r e l a t e d i s s u e s . P u b l i c S e c u r i t y I n d e x , E l S a l v a d o r , 2 0 1 3 , h t t p : / / w w w . r e s da l . o r g / i n g / l i b r o - s e g - 2 0 1 3 / e l -s a l v a d o r - i n d e x - 2 0 1 3 - i n g . p d f .

A 2 0 1 2 r e p o r t , c i t i n g t o t h e U . S . S t a t e D e p a r tm e n t A n n u a l R e p o r t o n H u m a n R i g h t s P r a c t i c e s f o r 2 0 1 1 , n o t e d t h a t ‘ “ w i d e s pr e a d s t r e e t v i o l e n c e a n d f r e q u e n t m u r d e r o f p o l i c e a n d w i t n e s s e s h a d c r e a t e d a “ c l i m a t e o f f e a r ” i n E l S a l v a d o r . ” ’ ( E m p h a s i s a d d e d ) . h t t p : / / w w w . i n s i g h t c r i m e . o r g / n e w s -a n a l y s i s / bu dg e t - s h o r t f a l l s - h i t - s a l v a do r - po l i c e - r e f o r m .

“ [ R ] e c e n t r e p o r t s s h o w t h a t t h e r e i s a n i n c r e a s e i n t h e l e v e l o f v i o l e n c e a s s o c i a t e d w i t h e x t o r t i o n c a s e s , i n c l u d i n g m e d i a r e p o r t s o f e x t o r t i o n v i c t i m s a n d w i t n e s s e s b e i n g k i l l e d , a d d i n g t o t h e s u s p i c i o n t h a t t h e d e c r e a s e s [ i n r e p o r t i n g ] c a n b e a c c o u n t e d f o r b y d e c r e a s e d r e p o r t i n g o f t h e c r i m e f o r f e a r o f r e t r i b u t i o n . ” U . S . D e p a r t m e n t o f S t a t e B u r e a u o f D i p l o m a t i c S e c u r i t y , E l S a l v a d o r 2 0 1 3 C r i m e a n d S a f e t y R e p o r t , h t t p s : / / w w w . o s a c . g o v / p a g e s / C o n t e n t R e p o r tD e t a i l s . a s px ? c i d = 1 3 8 7 5 .

U . S . S t a t e D e p a r tm e n t t r a v e l w a r n i n g , d a t e d N o v e m b e r 2 1 , 2 0 1 4 , h i g h l i g h t s t h e s o c i e t a l p e r c e pt i o n t h a t i t i s d a n g e r o u s t o r e p o r t g a n g - r e l a t e d c r i m e . D e p a r t m e n t o f S t a t e , E l S a l v a d o r T r a v e l W a r n i n g , h t t p : / / t r a v e l . s t a t e . g o v / c o n t e n t / p a s s p o r t s / e n g l i s h / a l e r t s w a r n i n g s / e l - s a l v a d o r - t r a v e l - w a r n i n g . h t m l .

B a s e d o n t h i s p u b l i c p e r c e p t i o n , S a l v a d o r a n s “ a r e u n d e r s t a n d a b l y l e s s l i k e l y t o c o m e f o r w a r d t o b r i n g p e r p e t r a t o r s o f g a n g v i o l e n c e t o j u s t i c e f o r f e a r t h a t t h e y w i l l m e e t t h e s a m e f a t e a s t h e i n i t i a l v i c t i m . ” M a r y L y n n S e e r y , W a r i n t h e S t r e e t s : E l S a l v a d o r ’ s G a n g P r o b l e m a n d t h e N e e d f o r I n t e r n a t i o n a l P r o s e c u t i o n a n d I n t e r v e n t i o n b y t h e I n t e r - A me r i c a n C o u r t o f H u m a n R i g h ts , J a n u a r y 1 , 2 0 1 4 , h t t p : / / s c h o l a r s h i p . s h u . e d u/ c g i / v i e w c o n t e n t . c g i ? a r t i c l e = 1 1 4 4 & c o n t e x t = s tu de n t _ s c h o l a r s h i p .

COI MATERIALS: SALVADORAN WITNESSES

O n e r e p o r t s t a t e s t h a t ‘ [ w ] h i l e t h e s e m a y b e w o m e n w h o c h o o s e t o l i v e a s a s i n g l e m o t h e r o r m a y b e l e f t -b e h i n d w i v e s o f m i g r a n t s , t h e v a s t m a j o r i t y a r e w o m e n w h o a r e a b a n d o n e d b y t h e i r p a r t n e r s [ . ] ’ U N C o m m i s s i o n o n H u m a n R i g h t s , R e p o r t o f t h e S p e c i a l R a p p o r t e u r o n v i o l e n c e a g a i n s t w o m e n , i t s c a u s e s a n d c o n s e q u e n c e s , M i s s i o n t o E l S a l v a d o r , 2 0 D e c e m b e r 2 0 0 4 , E / C N . 4 / 2 0 0 5 / 7 2 / A d d . 2 , a v a i l a b l e a t : h t t p : / / w w w . r e f w o r l d . o r g / d o c i d / 4 2 d 6 6 e 5 0 0 . h t m l [ a c c e s s e d 1 1 M a r c h 2 0 1 5 ] a t p a g e 8 . T h e U N r e p o r t r e f e r e n c e s a m a c h i s t a c u l t u r e w h e r e m e n o f t e n f a t h e r c h i l d r e n t o e s t a b l i s h t h e i r m a s c u l i n i t y a n d f r e q u e n t l y a b a n d o n t h e i r p a r t n e r s f o r o t h e r p u r s u i t s o r t o s t a r t o t h e r f a m i l i e s . T h e a p p l i c a n t ’ s h u s b a n d a b a n d o n e d h e r t o s t a r t a n e w f a m i l y w i t h a n o t h e r w o m a n , c o n s i s t e n t w i t h t h i s c u l t u r a l p a t t e r n . ” H Q C o n c u r r e n c e

W o m e n w h o c h o o s e t o l i v e a s s i n g l e m o t h e r s o r a r e a b a n d o n e d b y t h e i r p a r t n e r s “ h a v e l i t t l e s u p p o r t a n d p o w e r t o p r o t e c t t h e m s e l v e s a g a i n s t m a l e s e x u a l p r e s s u r e , w h i c h p u t s t h e m a t r i s k o f u n w a n t e d p r e g n a n c i e s , v i o l e n c e a n d f i n a n c i a l h a r d s h i p . ” S e e U N C o m m i s s i o n o n H u m a n R i g h t s , R e p o r t o f t h e S p e c i a l R a p p o r t e u r o n v i o l e n c e a g a i n s t w o m e n , i t s c a u s e s a n d c o n s e q u e n c e s , M i s s i o n t o E l S a l v a d o r , 2 0 D e c e m b e r 2 0 0 4 , E / C N . 4 / 2 0 0 5 / 7 2 / A d d . 2 , a v a i l a b l e a t : h t t p : / / w w w . r e f w o r l d . o r g / d o c i d / 4 2 d 6 6 e 5 0 0 . h t m l [ a c c e s s e d 5 M a r c h 2 0 1 5 ]

“ F a c t o r s s u c h a s t h e b r e a k d o w n o f k i n s h i p n e t w o r k s , a g r e a t e r a g e - d e p e n d e n c y r a t i o , i n f e r i o r e a r n i n g s , l o w t i m e a v a i l a b i l i t y f o r j o b s a n d l a c k o f s u f f i c i e n t f o r m a l a n d i n f o r m a l s u p p o r t m e c h a n i s m s c o n t r i b u t e t o t h e g e n e r a l i m p o v e r i s h m e n t a n d v u l n e r a b i l i t y o f f e m a l e - h e a d e d h o u s e h o l d s i n E l S a l v a d o r . ” S e e i d . A c c o r d i n g l y , t h e S a l v a d o r a n c o n s t i t u t i o n “ p r o v i d e s t h a t a l i m o n y e n t i t l e m e n t s h o u l d b e b a s e d o n t h e i m b a l a n c e d s i t u a t i o n r e s u l t i n g f r o m d i v o r c e a n d a . . . l a w h a s b e e n a d o p t e d i n E l S a l v a d o r t o p u n i s h d e a d b e a t f a t h e r s . ” S e e i d .

T h r o u g h o u t C e n t r a l A m e r i c a , “ [ a ] r e a s w i t h l a r g e n u m b e r s o f f e m a l e - h e a d e d h o u s e h o l d s . . . s u f f e r h i g h e r m u r d e r r a t e s . ” T h e c o r r e l a t i o n i s s o s t r o n g t h a t W o r l d B a n k e s t i m a t e s t h a t i n C e n t r a l A m e r i c a , “ a 1 0 p e r c e n t i n c r e a s e i n f e m a l e - h e a d e d h o u s e h o l d s w o u l d l e a d t o a 1 p e r c e n t i n c r e a s e i n t h e h o m i c i d e r a t e . ” W o r l d B a n k , C r i m e a n d V i o l e n c e i n C e n t r a l A m e r i c a : A D e v e l o p m e n t C h a l l e n g e , 2 0 1 1 , h t t p : / / s i t e r e s o u r c e s . w o r l d b a n k . o r g / I N T L A C / R e s o u r c e s / F I N A L _ V O L U M E _ I _ E N G L I S H _ C r i m e A n d V i o l e n c e . p d f [ a c c e s s e d 5 M a r c h 2 0 1 5 ] .

W i t h r e s p e c t t o i n c r e a s e d l e v e l s o f p o v e r t y , t h e U N S p e c i a l R a p p o r t e u r o n V i o l e n c e a g a i n s t W o m e n h a s n o t e d t h e w o r r y i n g t r e n d o f t h e g r o w i n g f e m i n i z a t i o n o f r u r a l p o v e r t y a n d t h e i n c r e a s e i n p o o r r u r a l h o u s e h o l d s h e a d e d b y w o m e n i n E l S a l v a d o r . S e e A m n e s t y I n t e r n a t i o n a l , O n t h e B r i n k o f D e a t h : V i o l e n c e A g a i n s t W o m e n a n d t h e A b o r t i o n B a n i n E l S a l v a d o r , 2 5 S e p t e m b e r 2 0 1 4 , A M R 2 9 / 0 0 3 / 2 0 1 4 , a v a i l a b l e a t : h t t p : / / w w w . r e f w o r l d . o r g / d o c i d / 5 4 2 5 1 d c 9 4 . h t m l [ a c c e s s e d 5 M a r c h 2 0 1 5 ] , c i t i n g U N H u m a n R i g h t s C o u n c i l , R e p o r t o f t h e S p e c i a l R a p p o r t e u r o n v i o l e n c e a g a i n s t w o m e n , i t s c a u s e s a n d c o n s e q u e n c e s , R a s h i d a M a n j o o - A d d e n d u m - F o l l o w - u p m i s s i o n t o E l S a l v a d o r , 1 4 F e b r u a r y 2 0 1 1 .

COI MATERIALS: SALVADORAN FEMALE HEADS OF HOUSEHOLD